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THE  PARK  GOVERNMENTS 
OF  CHICAGO 


AN  INQUIRY  INTO  THEIR  ORGANIZATION 
AND  METHODS  OF  ADMINISTRATION 


REPORT      PREPARED       BY      THE 
CHICAGO  BUREAU  OF  PUBUC  EFFICIENCY 

315  PLYMOUTH  COURT 


CHICAGO  BUREAU 

OF 

PUBLIC  EFFICIENCY 


TRUSTEES 


Julius  Rosenwald,  Chairman 
Alfred  L.  Baker,  Treasurer 

Onward  Bates  Charles  R.  Crane 

Clyde  M.  Carr  Henry  B.  Favill 

George  G.  Tunell  Walter  L.  Fisher 

Charles  E.  Merriam 


Herbert  R.  Sands,  Director 

George   C.  Sikes,  Secretary 

Peter  White,  Fiscal  and  Organization  Counsel 

Harris  S.  Keeler,  Legal  Counsel 


TABLE  OF  CONTENTS 


INTRODUCTION     9 

HISTORICAL   11 

GENERAL  SUMMARY  AND   CONCLUSIONS 15 

I.     Waste    and    Inefficiency    the    Natural    Consequences    of 

Lack   of   Unity 15 

II.     General  Characterizations  of  the  Separate  Park  Systems.  17 

1.  The  South  Park  System 17 

2.  The  West  Park  System 18 

3.  The  Lincoln  Park  System 21 

4.  The  Smaller  Park  Districts 21 

III.  Publicity  for  Park  Board  Affairs 22 

IV.  Financial  Matters   23 

V.     Improvements   Pending  Unification 24 

TEXT   OF   REPORT 27 

Part    One    27 

I.     Board  Meetings    27 

Time  and  Place  of  Meetings 27 

Executive   Sessions    28 

Recording  and  Publishing  Board  Proceedings 29 

Methods  of  Passing  Ordinances 30 

II.     General   Financial    Methods 31 

Receipts     31 

Expenditures    31 

Bonded  Debt   34 

Treasurers'   Sureties    36 

Interest  on   Deposits 37 

Special   Funds    40 

■  III.     Taxes  for  Park  Purposes 42 

Power  of  Park  Boards  to  Levy  Taxes 42 

Increase   of   Park   Taxes    Due   to   Change   in   Assessed 

Values    43 

Inequity  of  Tax  Distribution 46 

South  Park  Board  Specially  Benefited  in  1909  Levy.  ...  47 

South  Park  Board  Asking  Further  Increase  in  1911...  48 

Levying    Special    Assessments 49 

3 


i  007437 


TABLE  OF  CONTENTS— Continued 


IV.     Central  Accounting  and  Auditing  Control 49 

South  Park  Commissioners    49 

West  Chicago  Park  Commissioners 49 

Receipts    50 

Expenditures    51 

Materials   and   Supplies 51 

Contracts    52 

Payrolls    52 

Cost  Accounting   53 

Auditing    53 

In  General   55 

Lincoln  Park  Commissioners   56 

Receipts     56 

Expenditures    56 

Materials  and  Supplies 56 

Contracts    57 

Expense  Accounting   58 

Payrolls    58 

Auditing     58 

Summary  and  Conclusions  of  Part  One 59 

Board   Meetings    59 

General  Financial  Methods   60 

Taxes  for  Park  Purposes 63 

Central  Accounting  and  Auditing  Control 65 

Part   Two    ^^ 

I.     Methods  of  Purchase  (exclusive  of  coal) 67 

Need  for  Centralization 67 

Need    for    Standardization 70 

Purchase  of  Soil 74 

A  $100,000  Annual  Saving 75 

1 1.     Purchase    of    Coal 76 

Defects    in    Specifications ^^ 

South    Park    Commissioners ^^ 

West  Chicago  Park  Commissioners 78 

Lincoln  Park  Commissioners 78 

Methods    Actually    Employed    in    Weighing,    Sampling 

and  Testing   79 

South  Park  Commissioners 79 

West  Chicago  Park  Commissioners 79 

Lincoln  Park  Commissioners 79 

Savings  Possible  by  Proper  Selection  of  Coals 80 

4 


TABLE  OF  CONTENTS-Continued 


III.  Small  Parks  and  Playgrounds 83 

South    Park    Commissioners 84 

West  Chicago  Park  Commissioners 85 

Lincoln  Park  Commissioners 86 

In   General    86 

IV.  Special  Privileges   87 

South  Park  Commissioners   87 

West  Chicago  Park  Commissioners 88 

Lincoln  Park  Commissioners 89 

V.     Refectories  and  Lunch  Rooms 90 

South   Park   Commissioners 90 

West  Chicago  Park  Commissioners 93 

Lincoln   Park   Commissioners 95 

VI.     Boats     97 

South   Park   Commissioners    97 

West  Chicago  Park  Commissioners 99 

Lincoln   Park  Commissioners 99 

Summary  and  Conclusions  of  Part  Two 100 

Methods   of    Purchase    (exclusive    of   coal) 100 

Purchase    of    Coal 102 

Small  Parks  and  Playgrounds 103 

Special    Privileges     104 

Refectories  and  Lunch  Rooms 105 

Boats    107 

Part  Three    109 

I.     Police    Service    109 

Appointment   and   Discharge 109 

Increasing  Cost  of  Park  Police 110 

Duplication  of  Police  Work Ill 

Other  Conditions  Contributing  to  Excessive   Cost  and 

Inefficiency     112 

II.     Automobile   Service    114 

South  Park  Commissioners 114 

Original   Outlay    114 

Maintenance  and   Operation 114 

Service  Records   116 

West  Chicago  Park  Commissioners 117 

Original  Outlay    117 

Maintenance    and   Operation 117 

Service    Records     119 

Lincoln    Park    Commissioners    119 

Original  Outlay    119 

5 


TABLE  OF  CONTENTS— Continued 


Maintenance  and  Operation 120 

Service  Records   121 

A  Specific  Case  of  Wasteful  Methods 121 

III.     Horse  Service   123 

South  Park  Commissioners 123 

Methods  of  Purchase  and  Sale 123 

Accounting   for    Horses 124 

Foraging  of  Horses 124 

Management  of  Stables    124 

West   Chicago  Park  Commissioners 125 

Methods  of  Purchase  and  Sale 125 

Accounting  for  Horses   125 

Foraging  of  Horses 126 

Management   of  Stables 126 

Lincoln  Park  Commissioners 126 

Methods  of  Purchase  and  Sale 126 

Accounting  for   Horses 126 

Foraging  of  Horses   127 

Management   of   Stables 127 

IV.     Repair   Shops    127 

South  Park  Commissioners 127 

Organization  and  Equipment 127 

Shop    Costs    127 

West   Chicago  Park  Commissioners 128 

Organization  and  Equipment 128 

Shop  Costs  129 

Lincoln    Park    Commissioners 129 

Organization  and  Equipment 129 

Shop  Costs   130 

V.     Laundries    130 

South  Park  Commissioners 130 

West  Chicago  Park  Commissioners 131 

Lincoln  Park  Commissioners 132 

Summary  and  Conclusions  of  Part  Three 132 

Police    Service    132 

Automobile   Service    134 

Horse   Service    137 

Repair  Shops  139 

Laundries    139 

Part   Four    141 

I.     Electric  Lighting  and  Heating  Plants 141 

South    Park    Commissioners 141 

6 


TABLE  OF  CONTENTS— Continued 


West   Chicago  Park  Commissioners 143 

Lincoln  Park  Commissioners 145 

Boulevard   Lamps    146 

IL     Lincoln  Park  Extension 148 

in.     Marquette  Park   1^9 

IV.     South  Park  Administration  Building 151 

The  Old  Building 1^1 

The  New  Building  Project 152 

New  Building  Erected  at  a  Total  Cost  of  $173,418 153 

How  $145,000  Might  Have  Been  Saved 155 

V.     Insurance  of  Park  Structures 157 

VI.     Park  and  Boulevard  Pavements 162 

VII.     Need  for  Reorganization i 165 

Need  for  Reorganization  of  Existing  Park  Boards 165 

Need  for  a  Consolidated  Park  Organization 173 

Summary  and  Conclusions  of  Part  Four 175 

Electric  Lighting  and  Heating  Plants 175 

Lincoln    Park    Extension 1^^ 

Marquette    Park    ^'^ 

South  Park  Administration  Building 177 

Insurance  of   Park   Structures 178 

Park  and  Boulevard  Pavements 179 

Need  for  Reorganization 180 

APPENDIX    ^^-^  ^• 

Tables: 

Table  A  Showing  Amounts  of  General  Fund  of  West  Chicago 
Park  Commissioners  Available  for  Deposit  in  Bank  During 
1909  and  1910;  Amounts  Deposited  and  Amounts  Not  De- 
posited. 

Table  B  Showing  the  Kinds  of  Coal  Used  by  the  Several  Park 
Boards  and  the  Approximate  Cost  Thereof;  Also  Substitutes 
Suggested  and  the  Estimated  Annual  Savings  in  Cost. 

Table  C  Showing  Assessed  Value  in  Each  Park  District  and 
Town  for  1910,  the  Amount  of  Tax  Levies  Certified  to  the 
County  Clerk,  and  the  Rate  and  Amount  Extended  on  the  Tax 
Rolls. 

Table  D  Showing  Receipts  and  Expenditures  for  Each  Park 
Board  During  the  Fiscal  Year  1910;  Also  the  Bonded  Debt 
Outstanding  and  Sinking  Funds  Provided. 

7 


TABLE  OF  CONTENTS-Continued 


Table  E  Showing  Fieldhouses,  Playgrounds,  Swimming  Pools 
and  Bathing  Beaches  Maintained  by  the  South,  West  and  Lin- 
coln Park  Boards  and  the  City  Government. 

Table  F  Showing  Names  and  Areas  of  Parks  Under  Control  of 
Independent  Park  Governments  and  of  the  City  Government 
Respectively  in  Each  Town  and  Ward  of  the  City. 

Table  G  Showing  the  Authority,  Purpose,  and  1910  Rate  of  Each 
Park  Levy  Within  the  City  Limits;  Also  the  Amount  of  In- 
crease Made  Possible  in  the  1910  Levy  by  Changing  from  a 
One-Fifth  to  a  One-Third  Valuation;  Also  the  Amount  of  Each 
Levy  as  Certified  to  the  County  Clerk. 

Charts: 

South  Park  Commissioners — 
A — Chart  of  Organization  as  of  January  1,  1911. 
B — Chart  of  Reorganization  as  Suggested  by  the  Chicago  Bu- 
reau of  Public  Efificiency. 

West  Chicago  Park  Commissioners — 

C — Chart  of  Organization  as  of  January  1,  1911. 
D — Chart  of  Reorganization  as  Suggested  by  the  Chicago  Bu- 
reau of  Public  Efificiency. 

Lincoln  Park  Commissioners — 

E — Chart  of  Organization  as  of  January  1,  1911. 
F — Chart  of  Reorganization  as  Suggested  by  the  Chicago  Bu- 
reau of  Public  Efificiency. 

Chart  G  Showing  Organization  Under  Consolidation  as  Sug- 
gested by  the  Chicago  Bureau  of  Public  Efificiency. 

Map  Showing  Park  Districts  and  Parks  Within  City  of  Chicago. 


INTRODUCTION 


There  are  ten  separate  park  governments  within  the  City 
of  Chicago,  nine  of  which  are  independent  taxing  authorities. 
Moreover,  there  is  a  general  statute  under  which  additional  park 
governments  may  be  established.  The  existing  park  boards  now 
expend  approximately  six  million  dollars  annually.  While  the 
public  has  appreciated  the  excellent  park  facilities  which  have 
been  made  available,  it  has  known  comparatively  little  as  to  the 
organization  and  business  methods  of  the  park  boards. 

The  Chicago  Bureau  of  Public  Efficiency  was  organized  to 
furnish  the  public  with  information  regarding  public  revenues 
and  expenditures  and  to  assist  public  officials  in  securing  better 
methods  of  administering  public  affairs  in  Chicago.  The  Bureau, 
therefore,  in  the  fall  of  1910  sought  the  co-operation  of  the  South, 
West  Chicago,  and  Lincoln  Park  Boards,  respectively,  for  the 
purpose  of  making  a  study  of  their  organizations  and  methods 
of  administration. 

On  August  15,  1910,  the  South  Park  Board  formally  ex- 
tended to  the  Bureau  "an  invitation  to  examine  the  South  Park 
Commissioners'  system  and  methods  of  business."  The  Bureau 
was  apprised  of  the  Board's  action  in  a  letter  from  the  President, 
Henry  G.  Foreman,  dated  August  20,  1910. 

The  West  Chicago  Park  Board  took  similar  action  September 
6,  1910,  of  which  fact  the  Bureau  was  apprised  in  a  letter  from 
the  Secretary,  George  A.  Mugler,  dated  September  8,  1910. 

Also,  Francis  T.  Simmons,  President  of  the  Lincoln  Park 
Board,  wrote  a  letter  to  the  Bureau  September  26,  1910,  in 
which  he  offered  facilities  for  making  an  audit  "as  well  as  a 
thorough  inquiry  into  the  methods  of  the  Lincoln  Park  Board 
with  special  reference  toward  its  economic  side." 

Since  receipt  of  the  above  mentioned  communications,  the 
Bureau  has  conducted  an  extensive  inquiry  into  various  phases 
of  the  park  problem  in  Chicago.  It  should  be  noted,  however, 
that  the  inquiry   did   not   include   a   study  of   the   expenditures 

9 


10  Chicago  Bureau  of  Public  Efficiency 

for  outdoor  labor.  Neither  did  the  Bureau  make  an  audit  of  the 
accounts  of  the  park  boards.  The  inquiry  was  directed  rather  to 
the  fundamental  features  of  organization  and  to  the  methods 
of  business  administration. 

Chicago's  splendid  parks  and  boulevards  constitute  a  fea- 
ture of  the  city's  growth  of  which  its  people  may  be  justly  proud, 
and  it  must  be  recognized  that  much  credit  is  due  to  a  number 
of  public  spirited  citizens,  who,  in  their  capacity  as  park  com- 
missioners, have  contributed  their  time  and  efforts  to  the  devel- 
opment of  the  system. 

Allowing  full  credit,  however,  for  what  has  been  accom- 
plished, the  problem  presented  is:  How  may  better  results  be 
obtained  with  the  large  amounts  of  money  expended  annually 
for  park  purposes?  The  proportions  which  these  amounts  have 
attained,  the  inefficiency  and  waste  due  to  lack  of  unity  in  park 
government  and  the  rapidly  increasing  demand  for  park  facil- 
ities, particularly  those  of  the  character  afforded  by  the  small 
parks  and  playgrounds,  make  the  solution  of  this  problem  a 
matter  of  first  importance. 

This  report  undertakes  to  set  forth  in  detail  the  weak  places 
in  the  present  scheme  of  park  government  and  to  suggest  remedies. 


HISTORICAL 


The  present  multiplicity  of  park  governments  began  about 
1869,  at  which  time  the  South,  West  and  Lincoln  Park  Boards 
were  established.  Prior  to  that  time  the  public  parks  of  Chicago 
were  under  the  control  of  the  department  of  public  works  of 
the  city  government.  The  entire  park  area  was  approximately 
125  acres,  of  which  only  one-third  was  then  improved.  Today 
the  park  area  within  the  city  is  3,220  acres,  as  shown  in  detail 
in  Table  F  of  the  Appendix. 

The  first  attempt  to  found  the  South  Park  system  was  made 
in  1866.  Two  park  bills  were  prepared;  one  providing  that  a 
park  area  be  selected  as  an  addition  to  the  city  and  the  other 
that  the  park  area  selected  be  both  inside  and  outside  of  the 
city  limits,  and  providing  also  for  government  by  a  commis- 
sion of  five  members  to  be  appointed  by  the  Governor.  The 
latter  plan  which  provided  also  for  taxing  for  park  purposes 
only  that  portion  of  the  city  to  be  benefited  by  the  parks,  was 
adopted  by  the  promoters  and  the  bill  passed  the  Legislature 
in  1867.  It  was  defeated,  however,  when  submitted  to  a  vote 
of  the  people  of  the  towns  of  South  Chicago,  Hyde  Park  and 
Lake  at  the  general  election  the  next  spring.  Another  bill  con- 
taining practically  the  same  provisions  was  introduced  in  the 
next  Legislature  (1869)  and  passed.  It  provided  that  the  act 
should  be  submitted  to  the  people  at  a  special  election.  A  special 
election  for  the  purpose  of  voting  upon  this  act  was  therefore 
called  soon  after  and  the  measure  was  approved. 

The  bill  which  resulted  in  the  establishment  of  the  West 
Park  district,  as  originally  drafted,  provided  for  a  system  of 
parks  and  boulevards  throughout  the  entire  city.  When  the 
committee  from  the  City  Council  which  was  sent  to  Springfield 
to  urge  its  passage  found  that  representatives  from  the  South 
and  North  sides  of  the  city  had  arranged  for  the  passage  of 
bills  to  establish  separate  park  systems  in  those  portions  of 
the  city,  they  modified  their  bill  so  as  to  include  only  the  West 

11 


12  Chicago  Bureau  of  Public  Efficiency 

side.  The  bill  as  modified  provided  for  government  by  a  com- 
mission of  seven  members  to  be  appointed  by  the  Governor 
and  that  the  taxes  therefor  should  be  raised  within  the  limits 
of  the  park  district  described  in  the  act.  It  was  passed  by  the 
Legislature  and  on  March  23,  1869,  was  approved  by  a  vote 
of  the  town  of  West  Chicago  and  those  parts  of  the  towns  of 
Lake  View  and  Cicero  which  were  entitled  to  vote  under  the 
act.  The  West  Chicago  Park  Commissioners  are  appointed  for 
terms  of  seven  years. 

Lincoln  Park  originally  contained  about  sixty  acres  and 
was  set  off  for  a  public  park  from  lands  of  the  Chicago  ceme- 
tery by  an  ordinance  of  the  City  Council  passed  October  21, 
1864.  At  that  time  it  bore  the  name  Lake  Park.  This  was 
afterwards  changed  to  Lincoln  Park.  Beginning  with  the  next 
year,  annual  appropriations  were  made  by  the  City  Council 
for  its  maintenance,  the  money  being  derived  from  a  general 
tax  levy  of  the  entire  city.  In  February,  1869,  the  Legislature 
passed  an  act  fixing  the  boundaries  of  the  park,  providing  for 
condemning  of  remaining  cemetery  lots  and  also  that  the  gov- 
ernment of  the  park  be  vested  in  a  commission  of  five  persons 
named  in  the  act.  They  were  to  serve  five  years,  after  which 
their  successors  were  to  be  appointed  by  the  Governor.  A  ques- 
tion having  arisen  as  to  the  power  of  the  Legislature  to  name 
commissioners  in  the  law,  another  act  was  passed  in  June,  1871, 
providing  for  the  appointment  of  a  new  Board.  In  November 
of  that  year  the  Governor  appointed  five  commissioners  to  suc- 
ceed the  old  Board  and  subsequent  governors  have  appointed 
the  Lincoln  Park  Boards  under  the  same  authority.  The  number 
was  subsequently  changed  to  seven  and  they  have  been  appointed 
for  five  year  terms. 

A  number  of  acts  have  been  passed  which  are  amendatory 
to  the  acts  establishing  the  South,  West  and  Lincoln  Park 
Boards.  These  amendatory  acts  have  given  the  Boards  more 
taxing  and  bonding  power  and  provided  for  extending  and 
developing  their  facilities.  The  Lincoln  Park  Board  is  unfor- 
tunate in  that  the  creative  acts  were  ambiguous  in  some  features 
and  silent  upon  others.     They  were  never  submitted  to  a  vote 


The  Park  Governments  of  Chicago  13 

of  the  people  of  the  towns  of  North  Chicago  and  Lake  View, 
and  the  Board  is  therefore  not  clothed  with  corporate  authority 
such  as  is  vested  in  the  South  and  West  Park  Boards. 

On  July  1,  1895,  there  went  into  force  a  general  enabling 
act  under  which  many  additional  park  districts  might  be  estab- 
lished. Any  one  hundred  legal  voters  resident  within  a  pro- 
posed park  district  may  petition  the  County  Judge  to  order 
an  election  for  the  purpose  of  deciding  whether  the  district 
described  in  the  petition  shall  be  organized  and  also  for  the 
purpose  of  selecting  five  commissioners.  The  term  of  one  of 
these  commissioners  expires  each  year  and  the  vacancy  is  filled 
by  election. 

Seven  park  districts  have  already  been  organized  under  this 
act  within  the  City  of  Chicago.  The  names  thereof  and  dates 
of  organization  (election)  are  as  follows: 

Ridge  Avenue,  April  14,  1896. 
North  Shore,  May  10,  1900. 
Calumet,  September  12,  1903. 
Fernwood,  May  16,  1908. 
Ridge,   October  24,   1908. 
Irving  Park,  April   12,    1910. 
Northwest,  June  30,  1911. 


GENERAL  SUMMARY  AND  CONCLUSIONS 


I.     WASTE   AND    INEFFICIENCY   THE    NATURAL   CONSEQUENCES 
OF  LACK   OF  UNITY 

Under  separate  management,  each  of  the  three  large  park 
systems  of  Chicago  has  points  of  excellence — the  South  Park 
and  Lincoln  Park  systems  more  than  the  West  Park  system. 
From  the  viewpoint  of  the  community  as  a  whole,  however,  there 
is  not  only  much  waste  and  inefficiency  in  connection  with  expen- 
ditures of  park  funds,  but  the  needs  of  the  people  for  park  facili- 
ties are  not  properly  met,  nor  can  they  be,  so  long  as  the  present 
lack  of  unified  management  continues. 

There  are  ten  separate  park  boards  within  the  City  of  Chi- 
cago— not  counting  the  Special  Park  Commission,  which  is  an 
arm  of  the  city  government,  nor  the  Forest  Preserve  Commission, 
intended  to  have  taxing  authority  over  the  entire  County  of 
Cook,  the  act  creating  which  has  been  declared  unconstitutional. 
There  are  portions  of  the  City  of  Chicago  that  are  not 
within  any  of  the  ten  separate  park  districts.  The  names  of 
these  ten  boards,  the  amount  of  the  outstanding  bonded  indebt- 
edness and  of  the  annual  tax  levy  of  each  are  given  in  the  follow- 
ing tabular  statement :  rr  *  ^■o    ^  ^  t,        t?*^^ 

°  Total  Bonded  Taxes  Extended 

Indebtedness  at  End  by  County 

Park  District  of  Fiscal  Year  1910  Clerk  for  1910 

South  $  5,920,000.00  $2,601,159 

West 2,763,166.66  1,437,263 

Lincoln  *1,790,000.00  990,239 

Calumet 112 

Fernwood *13,000.00  3,867 

Irving 9,256 

North  Shore 32,000.00  10,506 

Northwest ** 

Ridge 32,500.00  6,542 

Ridge  Avenue 3,544 

$10,550,666.66  $5,062,488 
Special   Park   Commission — Appropria- 
tion by  City  Council  for  1910 130,102 

$10,550,666.66  $5,192,590 

Less :     Sinking  Fund  (See  below)  ....       470,458.81 

Net  Indebtedness   $10,080,207.85 


♦Sinking-  funds  held  against  these  bonds  as  follows: 

Lincoln $470,000.00.  Fernwood 54S8.81. 

**This  park  district  was  not  organized  until  1911. 

IS 


16  Chicago  Bureau  of  Public  Efficiency 

It  was  in  1869  that  legislative  action  was  secured  looking  to 
the  creation  of  the  three  large  park  systems,  one  for  each  divi- 
sion of  the  city.  The  seven  smaller  park  districts,  comprising 
territory  within  the  city,  but  not  under  the  jurisdiction  of  the 
South,  West  or  Lincoln  Park  Boards,  have  come  into  existence 
under  authority  of  an  act  of  the  Legislature  passed  in  1895. 

By  legislative  action  of  the  late  50's  and  early  60's  Chicago 
was  dealt  with  as  three  divisions  for  street  railway  purposes. 
This  was  a  serious  mistake  and  has  been  productive  of  great 
harm,  as  the  community  now  realizes.  Pressure  of  public  opinion 
is  being  exerted  to  force  the  unification  of  local  transportation 
lines.  The  separation  of  the  city  into  park  divisions  by  the  legis- 
lation of  1869,  following  close  upon  the  harmful  example  set  by 
the  street  railway  legislation  of  a  few  years  before,  was  likewise 
a  mistake.  Chicago,  for  park  purposes,  as  well  as  for  trans- 
portation purposes,  should  be  treated  as  one  community,  not 
three  or  more.  All  the  park  governments  should  be  merged  with 
the  city. 

Park  revenues  and  benefits  ought  to  be  distributed  over  the 
community  more  equitably.  Under  present  conditions  the  South 
Park  Commissioners  have  more  money  than  they  know  what  to 
do  with.  They  carry  excessively  large  balances  in  the  banks  and 
expend  funds  wastefully  on  a  large  scale.  The  West  Chicago 
Park  Commissioners,  who  are  wasteful  in  petty  ways,  really 
have  not  the  funds  with  which  to  make  adequate  provision  for 
the  park  and  playground  needs  of  the  territory  under  their 
jurisdiction. 

It  is  estimated  that  unification  of  park  activities  under  the 
city  government  would  mean  a  money  saving  of  $500,000  a  year. 
This  is  about  four  times  the  amount  of  the  appropriation  for 
1910  of  the  Special  Park  Commission  of  the  city,  and  over 
two-thirds  as  much  as  this  body  has  spent  during  the  entire  ten- 
year  period  of  its  useful  existence.  The  sum  that  might  be 
saved  each  year  by  consolidation  is  approximately  half  as  much 
as  the  annual  tax  levy  of  the  Lincoln  Park  Board,  and  one-third 
that  of  the  West  Park  Board. 


The  Park  Governments  of  Chicago  17 

II.    GENERAL  CHARACTERIZATIONS  OF  THE  SEPARATE 
PARK  SYSTEMS 


1.  The  South  Park  System. 

In  many  ways  the  administration  of  the  South  Park  system 
is  excellent.  The  standards  of  public  service  in  the  main  are 
high.  This  board  carries  on  directly  a  larger  proportion  of  its 
activities  than  any  other  municipal  government  in  the  commu- 
nity, and  for  the  most  part  with  satisfactory  results.  The  enter- 
prise manifested  in  the  development  and  successful  management 
of  small  park  and  playground  facilities  has  elicited  world-wide 
commendation.  The  improvement  of  Michigan  Avenue  and  the 
development  of  Grant  Park  are  undertakings  that  have  excited 
the  pride  of  the  entire  city  by  their  prospective  magnificence. 

In  certain  respects,  however,  the  South  Park  Board  has 
been  wasteful  on  a  large  scale.  With  more  revenue  than  all  the 
other  park  agencies  of  the  city  combined,  it  has  embarked  upon 
unwise  projects  that  would  hardly  have  been  undertaken  but  for 
the  abundance  of  funds  at  its  disposal. 

During  the  five  years  ending  April  1,  1911,  the  South  Park 
Board  had  on  deposit  in  bank  never  less  than  $1,000,000.  The 
monthly  average  of  the  deposits  during  the  period  was  approxi- 
mately $1,800,000.  It  is  wasteful  to  carry  such  large  deposits  in 
bank  at  comparatively  low  interest  rates,  while  the  Board  is  pay- 
ing much  higher  interest  rates  on  money  borrowed.  Savings 
could  have  been  effected  by  delaying  the  sale  of  bonds  until 
nearer  the  time  that  the  money  was  needed. 

The  South  Park  Board  insisted  upon  building  a  new  steam- 
driven  electric  plant  of  its  own  at  the  very  time  that  the  West 
Chicago  and  Lincoln  Park  Boards  were  entering  into  contracts 
with  the  Sanitary  District  for  the  supply  of  electric  current.  The 
new  plant  was  put  into  operation  January  31,  1908.  The  cost  of 
current  per  kilowatt-hour  for  the  year  ending  November  30,  1910, 
was  1.559  cents.  In  April,  1911,  a  five-year  contract  was  made 
with  the  Sanitary  District  for  the  delivery  of  electric  current  at 
a  price  of  three-quarters  of  a  cent  a  kilowatt-hour.  The  failure 
of  the  South  Park  Board  to  co-operate  earlier  with  the  Sanitary 
District  resulted  in  a  needless  expenditure  for  this  steam-driven 


18  Chicago  Bureau  of  Public  Efficiency 

electric  plant  of  approximately  $319,000.  Accountants  of  the 
Park  Board  gave  this  sum  as  the  investment  that  would  not  have 
had  to  be  made  if  the  Board  had  decided  earlier  to  purchase  from 
the  Sanitary  District  electric  current  used  in  the  South  Park 
system. 

The  site  of  Marquette  Park  was  purchased  in  1903  and  1904 
at  a  cost  of  $267,733.  It  has  been  since  improved  at  a  cost  of 
$305,943.  The  area  around  this  park  is  sparsely  settled.  The 
park  is  little  used.  It  is  not  yet  needed  in  the  neighborhood.  Its 
improvement  long  in  advance  of  the  need  was  unwise.  The  in- 
terest on  the  bonds  issued  for  this  improvement,  amounting  to 
over  $12,000  a  year,  must  therefore  be  characterized  as  a  waste- 
ful expenditure.  Moreover,  the  improved  portion  of  the  park 
causes  a  current  expense  for  maintenance. 

Another  expenditure  deserving  criticism  was  that  for  the 
new  administration  building,  erected  in  Washington  Park  at  a 
cost  of  $173,417.  The  old  building  could  have  been  enlarged  and 
made  serviceable  at  a  cost  of  less  than  $30,000,  thus  making  pos- 
sible a  saving  of  about  $145,000.  The  wisdom  of  locating  in  a 
public  park  such  a  costly  and  conspicuous  structure  for  adminis- 
trative purposes  is  questionable  in  any  event.  But  in  view  of 
the  likelihood  of  park  consolidation,  after  which  the  main  admin- 
istrative functions  would  be  centered  in  the  City  Hall,  the  expen- 
diture of  so  large  a  sum  on  an  administrative  building  must  be 
regarded  as  clearly  unwise.  The  public  should  be  on  the  alert 
to  prevent  any  similar  expenditures  that  are  inconsistent  with  the 
program  of  merging  all  Park  Boards  with  the  city. 

2.  The  West  Park  System. 
The  West  Park  system  has  a  varied  history.  Political  man- 
agement, extending  over  several  administrations,  brought  about 
demoralization.  A  few  years  ago,  under  the  presidency  of  Mr. 
B.  A.  Eckhart,  and  the  superintendency  of  Mr.  Jens  Jensen,  there 
was  a  complete  reversal  of  policy.  These  two  men  effected  revo- 
lutionary changes  in  park  management  and  wrought  great  im- 
provements. Following  the  retirement  of  Mr.  Eckhart  as  Presi- 
dent and  of  Mr.  Jensen  as  Superintendent,  there  has  been  retro- 
gression.   The  dominating  control  at  the  present  time  is  political. 


The  Park  Governments  of  Chicago  19 

The  actual  directing  head  of  the  West  Park  system  is  not  the 
Superintendent,  but  the  Secretary,  who  is  primarily  a  politician. 
The  note  of  political  control  is  more  pronounced  in  the  West 
Park  system  than  in  either  the  South  Park  system  or  the  Lincoln 
Park  system.  The  Commissioners  and  the  Secretary  have  sought 
to  avoid  the  scandals  that  characterized  the  administrations  prior 
to  Mr.  Eckhart's  time.  Apparently  they  are  trying  to  do  as  well 
as  they  can  without  eliminating  political  considerations  in  park 
management.  They  are  striving  to  meet  the  needs  of  the  district 
for  additional  park  and  playground  facilities,  in  which  they  are 
hampered  because  the  revenues  are  not  commensurate  with  the 
needs.  Instances  of  inefficiency,  unbusinesslike  methods  and 
waste  on  a  small  scale  are  certain  to  develop,  however,  when 
political  motives  are  allowed  to  enter  in  park  management. 

A  few  such  instances,  illustrative  of  the  point  in  question,  are 
presented  herewith. 

William  Holliday,  a  mechanic  employed  to  repair  automo- 
biles, was  carried  on  the  payroll  for  243  continuous  days,  Sundays 
and  holidays  included,  for  10  hours  a  day  at  70  cents  an  hour. 
Holliday's  bills  were  paid  at  once,  without  proof  of  their  correct- 
ness. Moreover,  $395  was  advanced  to  him  from  the  contingent 
fund.  On  March  1,  1911,  Holliday  was  placed  on  the  payroll 
at  $4.50  a  day.  On  September  1,  last,  he  was  still  on  the  payroll, 
but  no  deduction  had  been  made  from  his  wages  on  account  of 
the  $395  over-payment.  Automobile  parts  and  supplies  used  by 
Holliday  in  repair  work  were  purchased  by  him  personally.  On 
September  1,  1911,  $9,212.52  had  been  paid  Holliday  in  cash,  of 
which  $5,111.27  was  for  supplies  and  parts.  The  reason  given 
for  allowing  Holliday  to  make  these  purchases  was  that  he  could 
secure  a  larger  discount  than  the  Park  Board,  which  he  would 
divide  with  the  Board.  Examinations  made  by  the  Bureau  indi- 
cate that  Holliday  not  only  charged  the  Board  full  price  for 
articles  on  which  he  obtained  a  discount,  but  in  some  cases  he 
charged  the  Board  more  than  the  list  prices  in  the  printed  cata- 
logues of  the  dealers.  He  was  paid  by  the  Board  $30  for  a  cylin- 
der which  an  auto  company  furnished  him  free  of  charge.  More- 
over, the  park  records  show  no  refunds  or  credits  for  articles 
which  Holliday  returned  unused,  and  for  which  he  received  either 


20  Chicago  Bureau  of  Public  Efficiency 

cash  or  a  credit  on  other  purchases.  The  transactions  of  the 
West  Park  Board  with  HolHday  furnish  a  striking  example  of 
waste  of  public  funds. 

In  April,  1911,  employes  of  the  West  Park  Board  were  used 
for  several  days  to  do  work  about  a  political  club  house,  of  which 
club  the  Attorney  of  the  West  Park  Board  is  president.  They 
were  engaged  in  sodding  the  lawn  and  in  trimming  and  planting 
trees.  The  sod  was  brought  to  the  club  house  in  a  West  Park 
wagon.  Bureau  investigators  observed  the  West  Park  Attorney 
directing  the  work  of  the  park  employes  on  the  club  house 
grounds. 

The  South  Park  Board  and  the  Lincoln  Park  Board  each 
has  one  attorney.  The  West  Park  Board  has  a  $3,000  attorney, 
an  $1,850  assistant,  a  $1,200  stenographer  and  special  counsel 
when  occasion  requires.  The  stenographer,  instead  of  making 
his  headquarters  at  the  administration  building  of  the  park  sys- 
tem, occupies  a  part  of  the  downtown  office  of  the  park  attorney, 
where  his  name  appears  on  the  door  as  a  practicing  lawyer. 

Joseph  P.  Kinsella,  a  member  of  the  Illinois  Legislature,  and 
brother-in-law  of  the  Republican  committeeman  for  the  Sixteenth 
Ward,  has  held  for  several  years  a  very  favorable  concession  in 
Humboldt  Park,  granted  him  without  advertising  or  public  bids. 
Mr.  Kinsella  pays  the  Park  Board  $600  a  year.  In  return  he  gets 
living  quarters  for  himself  and  family  in  the  park  building,  with 
light  and  heat.  In  addition  to  the  right  to  maintain  refectory 
service  in  the  pavilion,  he  is  allowed  to  operate  candy  stands 
throughout  Humboldt  Park.  Kinsella  has  also  operated  a  pay 
cloak  room,  rented  skates,  sold  skate  straps,  and  was  allowed  to 
keep  a  piano  in  the  assembly  hall,  for  the  use  of  which  he  charged 
$3  a  night.  The  hall  was  used  245  times  during  1910  for  dances, 
receptions,  etc.,  which  made  it  possible  for  the  piano  to  earn  $735 
during  that  year.  Although  he  has  the  exclusive  refreshment 
privilege  and  abundant  table  facilities,  Kinsella  sells  only  soda 
water,  ice  cream,  candy,  peanuts  and  cigars  during  the  summer 
season.  There  is  no  place  in  Humboldt  Park  where  the  public 
can  obtain  lunch  or  cofifee,  except  during  the  skating  season,  when 
Kinsella  meets  the  demand.  Coffee  and  lunch  should  be  served 
in  this  park,  as  in  others,  during  the  summer  season. 


The  Park  Governments  of  Chicago  21 

The  West  Park  stables  have  more  men  to  care  for  71  horses 
than  the  South  Park  Board  finds  necessary  for  115,  or  the  Lincoln 
Park  Board  for  85.  The  cost  of  forage  per  horse  in  the  West 
Park  system  for  1910  was  $40  (over  25  per  cent)  per  horse  higher 
than  in  either  of  the  other  two  systems.  The  average  prices  paid 
for  horses  during  1910  was  $310  by  the  West  Park  Board,  $273 
by  the  Lincoln  Park  Board,  and  $269  by  the  South  Park  Board. 
Considering  that  horses  of  the  same  kind  are  used,  the  West 
Park  system  shows  an  excessive  cost  of  approximately  $40  per 
horse.  Comparisons  of  labor  cost  per  square  yard  of  pavement 
laid  by  the  different  Park  Boards  show  the  highest  cost  or  lowest 
efficiency  in  the  West  Park  system.  Following  are  the  figures: 
West  Park,  11.08  cents  a  square  yard;  Lincoln  Park,  10.22  cents; 
South  Park,  8.63  cents. 

3.  The  Lincoln  Park  System. 

The  administration  of  the  Lincoln  Park  system  has  been 
conservative,  careful,  and  in  the  main  creditable.  The  Lincoln 
Park  extension  work  has  been  well  conducted.  The  new  bathing 
beach  at  the  north  end  of  Lincoln  Park  has  been  much  appre- 
ciated by  the  public.  While  this  Board  has  not  been  so  aggressively 
brilliant  as  the  South  Park  Board  has  been  in  certain  respects, 
neither  has  it  pursued  a  course  to  justify  the  criticisms  that  may 
be  directed  against  either  the  South  Park  system  or  the  West  Park 
system. 

4.  The  Smaller  Park  Districts. 

Concerning  the  seven  smaller  park  districts  within  the  City 
of  Chicago,  there  is  little  to  be  said,  except  that  their  Boards  are 
sequestered  bodies  of  which  the  taxpayers  know  little.  It  was 
with  difficulty  that  the  Bureau  was  able  to  gather  the  main  facts 
about  these  bodies  and  their  business  affairs.  These  districts 
were  called  into  existence  to  satisfy  in  a  crude  way  the  needs 
of  communities  not  within  any  other  park  district.  Obviously 
the  best  way  to  satisfy  these  needs  is  to  make  the  city  one  park 
district,  and  to  wipe  out  these  smaller  bodies  that  are  destined 
if  they  continue  to  exist  to  escape  public  scrutiny  and  to  prove 
wasteful  and  inefficient  agencies  for  their  purposes. 


22  Chicago  Bureau  of  Public  Efficiency 

III.    PUBLICITY  FOR  PARK  BOARD  AFFAIRS 

The  administration  of  park  affairs  has  not  had  in  the  past 
the  degree  of  pubhcity  that  is  desirable.  A  strong  argument  for 
consoHdation  of  the  Park  Boards,  with  concentration  of  admin- 
istrative functions  at  the  City  Hall,  is  that  it  would  tend  to 
bring  park  matters  more  into  the  public  eye.  Neither  newspaper 
reporters  nor  representatives  of  citizen  organizations  find  it  so 
easy  to  follow  matters  affecting  the  parks  under  separate  Boards, 
meeting  in  scattered  places,  as  they  would  if  there  were  centraliza- 
tion. 

It  has  been  a  frequent  practice  in  the  past  for  the  Lincoln 
Park  Commissioners  and  the  South  Park  Commissioners  to  hold 
board  meetings  in  private  offices  downtown,  without  public  notice 
as  to  time  or  place  of  meeting.  All  meetings  should  be  held  at 
the  Board  offices  and  should  be  open  to  the  public,  unless  there 
should  be  a  special  reason  for  going  into  executive  session  upon 
a  particular  matter.  The  same  rule  should  apply  to  committee 
meetings,  where  important  matters  may  be  considered  by  com- 
mittees. The  West  Park  Board  holds  open  meetings,  but  the 
important  business  is  transacted  first  in  secret  sessions  of  the 
joint  committees  on  finance  and  maintenance,  comprising  all  the 
members  of  the  Board.  The  proceedings  in  the  open  Board  con- 
stitute merely  the  formal  ratification  of  what  has  been  agreed 
upon  in  secret  session.  On  one  occasion,  when  this  joint  com- 
mittee was  considering  a  franchise  grant  to  the  Chicago  Railways 
Company,  a  representative  of  the  company  was  admitted,  but 
others  were  excluded. 

The  West  Park  Commissioners  are  the  only  park  body  in 
Chicago  that  publish  the  minutes  of  proceedings.  The  cost  of  such 
publication  is  not  large  in  comparison  with  the  benefit  to  the 
public.  The  South  Park  Board  and  the  Lincoln  Park  Board 
ought  to  publish  their  proceedings  in  printed  form. 

The  procedure  of  all  the  Boards  in  passing  ordinances  is 
open  to  criticism.  Often  ordinances  are  passed  the  day  of  their 
introduction.  The  practice  should  be  to  print  and  postpone  final 
consideration  until  the  succeeding  meeting. 


The  Park  Governments  of  Chicago  23 

IV.    FINANCIAL  MATTERS 

In  1909  the  General  Assembly  of  Illinois,  as  a  means  of 
increasing  the  borrowing  power  of  cities,  changed  the  revenue 
law  so  as  to  make  the  assessed  value  of  property  one-third  of 
the  full  value,  instead  of  one-fifth.  The  tax  rates  of  all  local 
taxing  authorities  were  supposed  to  be  changed  to  correspond,  so 
that  the  maximum  tax  levy  of  each  municipality  would  be  the 
same  under  the  new  law  as  under  the  old.  The  only  effect  of 
the  modifications  of  the  statute,  the  community  was  assured,  was 
to  give  larger  borrowing  powers. 

The  inquiries  conducted  by  the  Bureau  disclose  that  while 
the  tax  rates  of  the  city,  county  and  other  local  governing  author- 
ities were  modified  so  as  to  yield  no  more  revenue  under  the 
new  assessed  value  than  under  the  old,  the  Park  Boards  were 
heavy  gainers  by  the  legislation.  The  tax  rates  of  the  South 
Park  Board  were  not  changed  at  all,  so  that  that  body  has  the 
right  to  levy  the  old  rates  against  the  higher  assessed  value  of 
property. 

Under  authority  of  this  new  legislation,  not  intended  for  its 
benefit  at  all,  the  South  Park  Board  increased  its  tax  levy  for 
1910  by  approximately  $400,000.  The  South  Park  Board,  more- 
over, is  the  only  one  of  the  local  taxing  bodies  that  suffers  no 
actual  scaling  under  the  Juul  law,  but  gets  the  full  amount  which 
it  levies. 

Some  of  the  tax  rates  of  the  West  Park  Board  were  modified 
in  connection  with  the  legislation  changing  the  assessed  value  of 
property  from  one-fifth  to  one-third.  Other  rates  of  this  body 
were  left  untouched.  Under  these  conditions  the  West  Park 
Board  was  enabled  to  increase  its  revenue  from  taxation  for  the 
year  1909  by  $407,581,  or  33  1/3  per  cent  over  what  it  secured 
in  1908.  The  Lincoln  Park  Board,  likewise,  secured  36  per  cent 
more  revenue  in  1909  than  it  had  in  1908 — an  increase  of 
$281,015.  The  rates  of  the  small  park  districts  were  not  changed 
to  correspond  with  the  bond  legislation,  so  that  these  bodies,  of 
which  there  are  now  seven,  may  levy  upon  the  one-third  value 
the  rates  intended  to  be  applied  to  the  one-fifth  value. 

It  was  sharp  practice  on  the  part  of  all  concerned  to  bring 


24  Chicago  Bureau  of  Public  Efficiency 

about  the  heavy  increase  of  taxation  for  park  purposes  as  the 
result  of  legislation  designed  to  have  no  other  purpose  than  to 
give  larger  borrowing  power.  The  Park  Boards  ought  to  make 
their  action  conform  in  the  future  to  the  spirit  of  that  legislation. 
The  levies  should  be  such  as  to  produce  only  the  revenue  that 
would  be  obtained  if  the  valuation  for  taxing  purposes  had  not 
been  changed. 

In  1909,  for  some  unexplained  reason,  the  County  Clerk,  in 
spreading  the  tax  levy,  gave  the  South  Park  Board  $50,534  more 
taxes  than  had  been  called  for  by  the  levy  of  the  Board. 

Certain  bond  issues  of  the  South  Park  Board  and  of  the 
West  Park  Board,  purporting  to  have  been  sold  above  par,  were 
really  disposed  of  below  par,  on  account  of  the  deferring  of  pay- 
ment of  all  or  part  of  the  purchase  price  for  considerable  periods 
of  time  without  interest. 

Practically  all  of  the  funds  of  the  South  and  West  Park 
Boards  are  on  deposit  with  a  single  bank,  officers  of  which  bank 
are  bondsmen  for  the  Treasurers  of  these  two  Boards.  The  Treas- 
urer of  the  South  Park  Board  is  one  of  the  bondsmen  for  the 
Treasurer  of  the  West  Park  Board,  and  vice  versa.  It  is  bad  pol- 
icy to  keep  all  the  funds  of  a  park  district  in  a  single  bank ;  and 
especially  to  concentrate  in  a  single  bank  practically  all  of  the 
funds  of  the  two  largest  park  districts.  The  policy  of  accepting 
personal  bondsmen  is  questionable,  especially  where  there  is 
inter-relationship  of  bondsmen  and  Treasurers  who  are  officers 
within  a  single  bank  holding  large  amounts  of  public  funds. 

The  Lincoln  Park  and  Fernwood  Park  Boards  have  sinking 
funds  that  are  deposited  in  bank  and  drawing  only  two  per  cent. 
Authority  should  be  secured  to  invest  such  funds  in  securities 
bearing  a  higher  rate  of  interest. 

The  Lincoln  Park  Board  is  the  only  one  to  adopt  a 
budget  in  advance  of  the  making  of  the  annual  tax  levy.  The 
other  Park  Boards  should  put  the  budget  system  into  use. 

V.    IMPROVEMENTS  PENDING  UNIFICATION 

The  great  need  of  the  Chicago  Park  situation,  of  course,  is 
the  merger  of  all  park  governments  with  the  city.    In  the  text  of 


The  Park  Governments  of  Chicago  25 

this  report  ways  are  shown  how,  pending  unification,  the  sepa- 
rate Park  Boards  may  effect  savings  and  bring  about  increased 
efficiency.  The  unnecessary  use  of  automobiles  and  the  excessive 
cost  of  poHce  service  constitute  two  of  the  most  conspicuous 
examples  of  waste. 

Automobiles  owned  by  the  three  Park  Boards  at  the  close 
of  the  fiscal  year  1910  represented  an  original  cost  of  $50,710. 
The  expense  of  maintenance  and  operation  for  the  year  1910  was 
$56,901,  apportioned  among  the  three  Boards  as  follows:  South 
Park,  $30,848;  West  Park,  $16,484;  Lincoln  Park,  $9,569.  Wher- 
ever automobiles  are  purchased  and  maintained  at  public  expense 
there  is  a  tendency  to  use  them  more  than  public  business  de- 
mands. A  study  of  the  situation  indicates  that  the  park  auto- 
mobiles are  no  exception.  The  automobile  expense  to  the  Chicago 
city  government  became  so  excessive  that  all  city-owned  ma- 
chines were  sold,  except  five  for  the  use  of  the  fire  and  police 
departments  and  the  Special  Park  Commission.  Automobile 
service  has  since  been  obtained  by  all  city  departments  on  requisi- 
tion through  the  purchasing  agent.  The  total  cost  of  such  service 
to  the  entire  city  government  during  1910  was  only  $8,195,  as 
against  a  cost  to  the  three  Park  Boards  during  the  same  period  of 
owning  and  operating  their  machines  of  $56,901.  The  Bureau 
believes  that  reductions  might  be  made  in  the  number  of  machines 
owned  and  of  chauffeurs  employed  by  the  Park  Boards  so 
as  to  effect  a  present  salvage  of  approximately  $8,000,  and  an 
annual  saving  in  cost  of  maintenance  and  operation  of  $22,000, 
without  impairing  in  any  degree  the  efficiency  of  park  work.  To 
prevent  the  misuse  of  public  automobiles,  service  records  should 
be  kept  showing  the  necessity  for  use.  Another  method  of  keep- 
ing down  expense  would  be  to  paint  all  machines  owned  by  the 
Park  Boards  a  distinctive  color,  with  the  name  of  the  Board  in 
large  letters  on  both  sides  of  each  machine. 

The  cost  of  park  police  service  has  been  increasing  at  a 
rapid  rate  in  recent  years.  The  number  of  men  on  the  police 
payrolls  is  larger  than  the  requirements  of  the  service  call  for. 
There  is  much  needless  duplication  of  work  on  the  part  of  park 
and  city  policemen,  especially  in  boulevard  duty.  Greater  effi- 
ciency might  be  had  at  smaller  cost  by  supplying  some  of  the 


26  Chicago  Bureau  of  Public  Efficiency 

park  police  with  motorcycles.  The  saving  that  might  be  effected 
by  the  three  Park  Boards  in  cost  of  police  service  is  estimated  at 
not  less  than  $60,000  a  year. 

The  efficiency  of  the  working  organization  of  each  system  has 
been  impaired  by  the  failure  to  delegate  sufficient  authority  to 
department  heads  and  to  charge  them  with  responsibility.  Better 
results  should  be  obtained  if  each  of  the  three  large  Park  Boards 
would  adopt  a  more  scientific  form  of  organization.  A  suggested 
plan  of  reorganization  for  each  Board  is  described  and  also 
charted  in  the  report. 


The  Park  Governments  of  Chicago 


PART  ONE 


I.    BOARD  MEETINGS 


TIME  AND  PLACE  OF  MEETINGS 

The  time  of  regular  meetings  of  the  three  large  Park  Boards 
is  as  follows: 

South — Third  Wednesday  of  each  month. 

West — Second  and  fourth  Tuesday  of  each  month. 

Lincoln — Second  Wednesday  of  each  month. 

The  South  and  West  Park  Boards  also  provide  for  annual 
meetings,  to  be  held  soon  after  the  close  of  the  fiscal  year.  The 
ordinances  of  the  Lincoln  Park  Board  provide,  however,  that 
the  first  meeting  each  December  shall  be  the  annual  meeting. 
The  fiscal  year  does  not  end  until  December  31,  and  it  is  there- 
fore impossible  for  annual  reports  to  be  ready  for  considera- 
tion at  that  meeting.  For  this  reason  it  is  suggested  that  the 
annual  meeting  be  held  after  the  close  of  the  year. 

It  is  also  provided  by  the  several  Boards  that  special  meet- 
ings may  be  called. 

The  ordinances  of  the  South  Park  Board  and  (since  1908) 
of  the  Lincoln  Park  Board  provide  that  all  regular  meetings 
shall  be  held  in  the  park  offices  in  Washington  and  Lincoln 
parks  respectively.  For  several  years  preceding  1911,  however, 
it  was  provided  that  the  former  Board  might  designate  the 
office  of  the  Treasurer  in  the  Illinois  Trust  and  Savings  Bank 
as  the  place  of  regular  meetings,  and  that,  with  the  consent 
of  not  less  than  four  commissioners,  special  and  adjourned 
meetings  may  be  held  anywhere  in  the  South  Park  district. 

Prior  to  1909  the  Lincoln  Park  Board  held  most  of  its  reg- 
ular meetings  in  private  offices  down  town.  During  the  last 
five  years  special  meetings  of  the  Lincoln  and  South  Park  Boards 

27 


28 


Chicago  Bureau  of  Public  Efficiency 


and  also  many  adjourned  regular  meetings  of  the  latter  have 
been  held  in  various  private  offices  down  town.  Matters  of 
much  public  importance  were  often  considered  at  these  adjourned 
and  special  meetings,  which,  owing  to  the  private  character  of 
the  place  of  meeting,  did  not  secure  the  degree  of  publicity  to 
be  desired. 

The  West  Park  Board  has  held  all  its  meetings  at  the  park 
offices  in  Union  park.  This  Board  has  also  been  the  only  one 
to  give  regular  notice  of  all  its  open  meetings  to  the  Chicago 
press.  The  failure  of  the  other  boards  to  do  so  prevents  the 
wholesome  influence  which  the  press  is  able  to  exercise. 

The  following  tabulations  show  the  number  of  regular,  ad- 
journed and  special  meetings  of  the  South  and  Lincoln  Park 
Boards  held  during  the  last  five  calendar  years,  and  whether 
they  were  held  in  the  park  offices  or  elsewhere: 


SOUTH  PARK  BOARD. 

1906  1907  1908  1909  1910  Total. 

Regular  meetings    11  11  12  10  10  54 

Adjourned  meetings  12  22  11  13  9  67 

Special  meetings . .  . .  . .  3  3 

Totals    23  33  23  23  22  124 

Park  offices   22  24  17  13  16  92 

Elsewhere 1  9  6  10  6  22 


LINCOLN    PARK    BOARD. 

1906  1907  1908  1909  1910  Total. 

Regular  meetings  10  11  12  11  11  55 

Special  meetings    13  9  5  5  9  41 

Totals    23  20  17  16  20  96 

Park  offices   4  1  7  13  15  40 

Elsewhere    19  19  10  3  5  56 


EXECUTIVE  SESSIONS 

The  policy  of  the  Park  Boards  of    maintaining    standing 
committees,    criticized    later    in    this    report    in    the    discussion 


The  Park  Governments  of  Chicago  29 

of  organization,  is  especially  bad  in  that  the  deliberations  of 
the  committees  have  with  few  exceptions  been  conducted  in 
executive  sessions.  The  full  boards — West  and  Lincoln  Park 
systems — also  often  hold  executive  sessions.  In  the  West 
parks  the  personnel  of  the  finance  and  the  maintenance  com- 
mittees is  so  arranged  that  the  two,  acting  jointly,  comprise 
the  whole  board.  Little  work  is  done  by  the  other  commit- 
tees, and  all  matters  of  importance  are  referred  to  either 
the  Finance  or  Maintenance  Committee  or  both.  Most  of  the 
deliberations  of  the  Board  are  conducted  behind  closed  doors 
by  the  committees  acting  jointly.  The  Bureau  noted  an  in- 
stance when  so  important  a  measure  as  the  granting  of  a  street 
railway  franchise  was  discussed  in  executive  session.  Having 
determined  in  committee  upon  what  action  is  to  be  taken,  the 
formalities  of  adoption  are  gone  through  in  open  session. 

The  practice  of  public  bodies  of  entering  into  executive  ses- 
sion to  transact  the  public  business  is  open  to  serious  criticism. 
With  rare  exceptions,  there  appears  to  be  no  need  for  such 
secrecy.  It  is  suggested  in  this  report  that  all  standing  com- 
mittees be  abolished.  If  at  any  time  it  should  be  necessary  to 
conserve  the  public  interests  by  holding  an  executive  session 
of  the  entire  Board,  it  is  suggested  that  an  adjournment  be 
taken  at  a  regular  meeting  and  that  it  be  recorded  in  the  min- 
utes that  the  Board  resolved  to  go  into  executive  session  for 
the  purpose  stated. 

RECORDING  AND  PUBLISHING  BOARD  PROCEEDINGS 

Stenographic  notes  are  taken  of  the  open  Board  proceed- 
ings of  the  West  and  Lincoln  Park  Boards.  No  stenographer 
attends  the  meetings  of  the  South  Park  Board.  The  secret 
method  pursued  by  the  West  Park  Board  in  transacting  busi- 
ness in  committee  prevents  the  real  deliberations  of  that  Board 
from  becoming  a  matter  of  record.  The  proceedings  of  the  West 
Park  Board  as  recorded,  however,  are  published  in  printed 
pamphlet  form.  The  South  and  Lincoln  Park  Boards  are  the 
only  public  governing  bodies  in  Chicago  spending  any  consid- 
erable amount  of  money  that  do  not  publish  official  proceed- 


30  Chicago  Bureau  of  Public  Efficiency 

ings  of  meetings.  Without  publication,  the  proceedings  do  not 
receive  that  degree  of  publicity  desirable  for  public  business.  It 
is  seldom  that  reporters  cover  the  meetings,  and  when  they  do 
the  newspaper  accounts  are  generally  meager  and  sometimes  in 
error.  Even  if  the  average  citizen  had  time,  he  hesitates  to  ask 
the  privilege  of  looking  at  the  written  record.  It  is  suggested 
that  all  proceedings  be  published  and  distributed  to  the  public 
libraries,  press,  and  to  such  civic  organizations  and  persons  as 
request  copies.  Printed  copies  would  also  prove  a  matter  of 
much  convenience  to  the  Commissioners  themselves.  The  cost 
of  publishing  the  West  Park  proceedings  in  1910  was  $1,112.54. 
The  suggestion  is  made  to  the  Lincoln  Park  Board  that  they 
have  their  minutes  typewritten  in  a  bound  book  in  the  first 
instance  and  dispense  with  the  long-hand  copying  of  a  duplicate 
record,  as  under  the  present  procedure. 

METHODS  OF  PASSING  ORDINANCES 

The  method  of  passing  ordinances  has  been  similar  in  each 
Park  Board.  They  are  usually  prepared  by  the  Board's  attorney 
and  presented  to  the  Board  in  writing;  and  as  neither  the  sta- 
tutes nor  ordinances  provide  for  more  than  one  reading,  they 
have  frequently  been  passed  on  first  reading  at  the  meeting  at 
which  they  were  presented.  Some  ordinances  originate  in  com- 
mittee, others  are  occasionally  referred  to  a  committee  for 
consideration  and  report,  but  many  are  presented,  read  and  passed 
at  the  same  meeting.  This  course  often  prevents  the  public,  as 
well  as  commissioners  who  may  be  absent,  from  becoming 
informed  as  to  proposed  action. 

The  Lincoln  Park  Board  publishes  its  ordinances,  immediately 
after  passage,  for  ten  days  in  two  Chicago  daily  papers.  No 
such  publication  is  made  by  the  other  boards.  The  Bureau  sug- 
gests that  each  Park  Board  adopt  a  rule  that  no  ordinance  shall 
be  passed  at  the  same  meeting  at  which  it  is  presented,  and  not 
until  a  copy  of  the  proposed  ordinance  has  been  published  in  the 
official  proceedings,  together  with  advice  as  to  the  date  upon 
which  the  ordinance  will  be  called  up  for  second  reading  and 
action. 


The  Park  Governments  of  Chicago  31 

11.    GENERAL  FINANCIAL  METHODS 


RECEIPTS 


The  receipts  of  the  several  park  districts  within  the  city  are 
derived  from  three  general  sources :  ( 1 )  from  sale  of  bonds, 
(2)  from  taxes  and  special  assessments,  and  (3)  from  charges 
for  services  rendered,  and  rental  and  sale  of  park  property.  The 
receipts  from  sale  of  park  bonds  and  from  special  assessments 
are  applied  in  increasing  the  value  of  the  assets  of  the  park 
boards.  The  other  receipts  are  used  for  purposes  of  operation 
and  maintenance.  The  Special  Park  Commission  of  the  city  gov- 
ernment receives  an  appropriation  for  operation  and  mainte- 
nance in  the  annual  city  budget  each  year.  The  total  receipts  of 
all  park  governments  within  the  city  of  Chicago  during  1910 
were  $5,656,740.  The  amounts  received  by  each  park  district 
during  that  year  are  shown  in  Table  D  of  the  Appendix. 

EXPENDITURES 

The  total  expenditures  in  Chicago  for  public  park  purposes 
in  1910  were  $6,003,654.  Of  this  amount  $2,342,641  was  for 
salaries  and  wages.  The  1910  expenditures  for  each  of  the  park 
districts  for  all  purposes  are  shown  in  detail  in  Table  D  of  the 
Appendix. 

Municipal  governments  with  few  exceptions  expend  their 
money  each  year  according  to  definite  plans  or  budgets  carefully 
compiled  and  formally  adopted  either  before  or  soon  after  the 
beginning  of  the  year.  There  is  no  uniformity  in  the  fiscal  policy 
of  the  South,  West  and  Lincoln  Park  Boards  in  this  respect. 

The  Lincoln  Park  Board  is  the  only  park  board  which,  preced- 
ing the  time  of  levying  taxes,  attempts  to  compile  a  classified 
estimate  of  the  amounts  needed  during  the  ensuing  year  for  each 
of  the  park  functions  and  activities.  An  estimate  of  this  char- 
acter, although  it  does  not  go  much  into  details,  is  prepared  and 
transmitted  each  year  by  the  Lincoln  Park  Board  to  the  town 
authorities,  together  with,  and  supporting  the  amount  of  tax  levy 
requested.    In  levying  and  extending  the  taxes  the  gross  amount 


Zl  Chicago  Bureau  of  Public  Efficiency 

requested  is  usually  reduced  by  the  taxing  authorities.  The 
Park  Board  then  immediately  readjusts  its  original  estimate 
by  scaling  it  down  to  equal  the  amount  of  taxes  actually 
extended  on  the  tax  rolls,  plus  miscellaneous  revenues  expected 
to  accrue,  and  less  probable  loss  and  cost  of  collection.  This 
readjusted  estimate  is  then  used  as  a  guide  throughout  the 
year.  The  amount  contained  in  the  estimate  for  each  function 
and  activity  becomes  in  fact  an  appropriation;  accounts  are 
opened  under  corresponding  titles  and  a  monthly  statement, 
showing  the  expenditures  against  each  appropriation,  i.  e.,  each 
item  in  the  revised  estimate,  is  rendered  to  the  board  by  the  book- 
keeper. 

The  South  Park  Board  compiles  and  adopts  a  similar  esti- 
mate each  year  but  not  until  nearly  a  year  after  the  tax  levy  has 
been  made.  In  fact,  the  taxes  have  been  extended  by  the  County 
Clerk  and  nearly  all  collected,  and  expenditures  have  actually 
been  made  by  the  Park  Board  for  several  months  of  the  current 
year  before  the  estimate  (budget)  is  adopted.  For  example,  col- 
lection of  the  levy  of  August  6,  1909,  began  in  January,  1910. 
This  levy  was  made  for  the  purpose  of  meeting  expenditures  of 
the  fiscal  year,  beginning  March  1,  1910,  and  yet  the  estimates 
for  the  year  were  not  adopted  until  June  30,  1910,  four  months 
later.  The  dates  on  which  the  estimates  of  the  South  Park  Board 
were  adopted  in  recent  years  are  as  follows : 

May  16,  1906.  June  30,  1909. 

May  31,  1907.  June  30,  1910. 

June  3,  1908.  April    5,  1911. 

Ledger  accounts  are  opened  with  each  estimate  title,  as  is 
done  by  the  Lincoln  Park  Board,  and  monthly  statements  ren- 
dered of  expenditures  from  each. 

The  West  Park  Board  adopts  no  formal  estimate  as  a  basis 
for  administration  except  as  each  piece  of  new  work  is  planned. 
In  the  latter  part  of  1908,  the  estimates  for  the  West  Park  Board 
for  the  ensuing  year  were  compiled  in  the  form  of  a  budget.  The 
amounts  estimated  as  necessary  for  each  function  and  activity 
were  set  forth  in  great  detail  as  to  objects  of  expenditure,  such  as 
individual  salary  items,  kinds  of  supplies,  etc.     It  was  a  very 


The  Park  Governments  of  Chicago  ZZ 

commendable  piece  of  work  and  had  it  been  adopted  and  subse- 
quently adhered  to  during  the  year  would  have  gone  far  to  re- 
move many  of  the  objectionable  features  of  the  financial  system 
of  the  West  Park  Board.  The  budget  was  transmitted  to  the 
Board  by  the  President,  January  1,  1909,  and  was  published  in  the 
annual  report  of  the  Board  for  1908.  In  his  letter  to  the  Board 
in  which  he  transmitted  the  report,  the  President  said : 

"I  attach  hereto  the  proposed  budget  for  the  year  1909,  showing 
in  detail  the  outlined  expense  for  completing  the  work  already  under 
way,  improving  the  grounds  and  buildings,  maintaining  the  system  and 
its  total  pay  roll." 

The  beginning  thus  made  toward  the  adoption  of  scientific 
budget  methods  was  not  further  developed.  The  budget  was  not 
used  as  a  guide  during  the  year  nor  was  it  even  adopted  by  the 
Board;  in  fact,  its  publication  in  the  annual  report  was  mislead- 
ing inasmuch  as  it  conveyed  to  the  public  the  impression  that  the 
Park  Board  was  operating  under  or  was  about  to  inaugurate 
scientific  budget  methods. 

Sound  business  principles  demand  that  a  definite  financial 
plan  be  adopted  by  each  Park  Board  at  the  beginning  of  each 
year  as  a  guide  for  that  year.  It  matters  not  whether  the  plan 
is  called  an  "estimate,"  "budget,"  or  something  else,  but  the  items 
contained  therein  should  be  carefully  considered  by  the  Board, 
inasmuch  as  there  is  often  more  merit  in,  or  necessity  for,  some 
park  expenditures  than  others. 

Moreover,  the  public  is  entitled  to  know  at  the  beginning  of 
each  year  how  the  Park  Boards,  which  are  public  bodies,  propose 
to  expend  the  millions  of  dollars  of  public  funds  with  which  they 
are  entrusted.  After  a  definite  plan  is  adopted,  the  public  is  also 
entitled  to  know  when  changes  are  made  therein.  It  is  therefore 
suggested  to  each  Park  Board  that  each  item  in  the  estimate 
finally  adopted  be  considered  an  appropriation  and  that  a  ledger 
account  be  maintained  with  each.  It  is  further  suggested  when 
an  amount  in  the  estimate  has  proven  insufficient  for  the  pur- 
pose intended,  that  the  matter  be  reported  to  the  Board  by  the 
chief  accountant,  and  that  the  Board  consider  the  situation  in 
open  meeting  and  either  stop  further  charges  against  such  ap- 
propriation or  authorize  a  transfer  thereto  of  a  part  of  some 


34  Chicago  Bureau  of  Public  Efficiency 

other  estimate  item  which  may  have  been  found  to  exceed  the 
amount  required.  The  exceeding  of  original  allowances  would 
thus  be  brought  to  the  attention  of  the  Board  and  of  the  public. 

BONDED  DEBT 

The  South  and  West  Park  districts  are  municipal  corpora- 
tions and  are  empowered,  when  authorized  by  the  Legislature  to 
do  so,  to  issue  bonds  the  aggregate  amount  of  which,  together 
with  the  other  indebtedness  of  the  district  shall  not  exceed  5 
per  cent  of  the  assessed  value  of  the  taxable  property  of  the 
district.  Whether  in  any  case  the  question  of  issuing  such  bonds 
shall  be  submitted  to  a  referendum  vote  is  a  matter  within  the 
control  of  the  Legislature. 

The  small  park  districts  are  also  municipal  corporations. 
The  act  providing  for  their  organization  authorizes  each  district 
to  issue  bonds  to  an  amount  which,  together  with  the  existing 
indebtedness  of  the  district,  will  not  exceed  3  per  cent,  of  the 
value  of  the  taxable  property  therein. 

The  Lincoln  Park  Board  has  issued  bonds  through  the 
medium  of  the  authorities  of  the  towns  in  which  the  district  is 
located.  The  bonded  debt  of  all  the  park  districts  outstanding 
at  the  close  of  the  fiscal  year  1910  was  $10,550,666.  The  bonded 
debt  of  each  district  is  set  forth  in  Table  D  of  the  Appendix.  Of 
the  West  Park  bonds  outstanding  at  the  close  of  1910,  $320,000 
were  20  year  bonds  redeemable  on  call.  Of  the  Lincoln  Park 
bonds  outstanding  at  that  date,  $1,200,000  were  20  year  bonds  for 
$1,160,000  of  which  sinking  funds  were  maintained.  Fernwood 
Park  district  also  had  an  issue  of  $13,000  of  20  year  bonds  out- 
standing, for  which  a  sinking  fund  was  maintained.  With  these 
exceptions  the  bonds  of  all  the  park  districts  were  20  year  bonds 
maturing  serially  each  year. 

The  sinking  funds  of  the  Lincoln  and  Fernwood  Park 
Boards  are  deposited  in  bank.  Only  2  per  cent,  interest  is  re- 
ceived thereon.  It  would  be  better  economy  to  secure  authority 
to  invest  the  sinking  funds  in  4  per  cent  park  securities. 

An  examination  of  the  prices  at  which  bonds  of  the  Chi- 
cago park  districts  have  been   sold  and  interviews   with   local 


The  Park  Governments  of  Chicago  35 

bond  experts  indicate  that  these  bonds  do  not  have  as  high  a 
market  value  as  bonds  of  the  City  or  County  governments.  This 
is  due  largely  to  the  fact  that  the  security  behind  the  park  bonds 
is  not  so  well  understood,  especially  by  buyers  living  at  a  dis- 
tance. The  savings  banks  of  Massachusetts  and  New  York  can- 
not legally  invest  in  them. 

Several  of  the  bond  issues  which  appeared  to  the  public  to 
have  been  sold  at  par  were  really  sold  below  par.  The  South 
Park  Board  sold  two  issues  of  4  per  cent,  bonds  aggregating  $2,- 
000,000,  dated  July  1,  1903,  at  a  premium  of  $5,000.  They  were 
delivered  October  19,  1903,  at  which  time  $1,000,000  was  re- 
ceived in  payment  and  the  other  $1,000,000  was  deferred  until 
April  1,  1904,  at  2  per  cent.  Instead  of  receiving  a  premium, 
the  Park  Board  by  allowing  the  purchasers  all  of  the  accrued 
interest  and  accepting  only  2  per  cent,  on  a  deferred  payment  of 
$1,000,000  really  lost  $28,000  as  follows  : 

Interest  on  $2,000,000  at  4  per  cent  from  July  1,  1903, 

to  October  19,  1903 $24,000.00 

Interest  on  $1,000,000  at  4  per  cent  from  October  19, 

1903,  to  April  1,  1904 $17,999.97 

Less  interest  received  thereon  at  2  per  cent 8,999.97        9,000.00 

$33,000.00 
Less   $5,000  premium 5.000.00 

$28,000.00 

It  should  be  noted  in  connection  with  the  above  that  all 

other  bonds  issued  by  the  South  Park  Board  have  sold  above  par 

and  this  issue  was  put  out  in  a  year  when  the  bond  market  was 

unfavorable. 

The  West  Park  Board  sold  $2,000,000  of  4  per  cent,  bonds 
in  1906  at  a  premium  of  $150.  Although  the  Park  Board  re- 
ceived the  accrued  interest  on  these  bonds,  $1,500,000  of  the 
purchase  price  was  deferred  without  any  interest — $500,000  for 
three  months,  $500,000  for  six  months,  and  $500,000  for  nine 
months.  This  transaction,  therefore,  resulted  in  a  net  discount 
to  the  Park  Board  of  $29,850  instead  of  a  premium  of  $150. 

The  West  Park  Board  also  sold  $950,000  of  4  per  cent, 
bonds  in  1907  at  a  premium  of  $125.  The  Board  received  the 
accrued  interest  but  $500,000  of  the  purchase  price  was  deferred 


36  Chicago  Bureau  of  Public  Efficiency 

without  any  interest— $100,000  for  two  months,  $100,000  for  four 
months,  $100,000  for  six  months,  and  $200,000  for  eight  months. 
This  transaction,  therefore,  resulted  in  a  net  price  to  the  Park 
Board  of  $9,208.33  less  than  par. 

The  West  Park  Board  also  sold  $1,000,000  of  4  per  cent 
bonds  in  1911  at  par.  Although  there  was  no  accrued  interest 
or  deferred  payment  transaction  incident  to  this  sale,  the  park 
books  show  that  the  purchaser  was  paid  a  legal  fee  of  $9,933. 

The  only  other  bond  sales  by  the  West  Park  Board  since 
1900  were  one  of  $18,000  on  which  $50  accrued  interest  was  al- 
lowed the  purchaser  and  one  of  $25,000  which  was  sold  at  a  dis- 
count of  $281.25. 

The  books  containing  the  records  of  the  sale  by  the  Lincoln 
Park  Board  of  the  Shore  Protection  bonds  of  1891  are  appar- 
ently lost.  The  Lincoln  Park  issue  of  $1,000,000  in  1903  sold 
at  a  slight  premium  and  accrued  interest  and  the  $500,000  issue 
of  1907  was  sold  at  par  and  accrued  interest.  The  issue  of  $250,- 
000,  dated  July  1,  1909,  was  sold  in  several  lots  ranging  from 
97^/2  to  par.  Accrued  interest,  however,  was  collected  on  all  of 
the  sales.  The  last  issue  of  Lincoln  Park  bonds,  dated  May  1, 
1911,  for  $875,000  was  sold  at  96,  the  bonds  to  be  delivered  and 
paid  for  with  accrued  interest  as  the  money  is  needed  by  the 
Park  Board.  The  fact  that  Lincoln  Park  bonds  must  be  issued 
by  the  town  authorities  of  the  Town  of  North  Chicago  or  the 
Town  of  Lake  View  respectively  complicates  the  situation  in  the 
eyes  of  the  purchasers  and  affects  the  price. 

Legislation  providing  for  a  consolidation  of  the  park  dis- 
tricts with  the  City  government  should  readjust  the  debt  limit 
of  the  consolidated  governments  so  that  the  present  bonding 
power  allowed  each  Park  Board  would  be  added  to  the  bonding 
power  allowed  the  City. 

TREASURERS'  SURETIES 

It  has  been  customary  for  each  of  the  Park  Boards  to  ap- 
point as  Treasurer  a  Chicago  banker,  usually  the  president  of  a 
bank.  The  banker-treasurers  have  usually  kept  all  of  the  park 
funds  in  the  banks  with  which  they  were  connected.     At  the 


The  Park  Governments  of  Chicago  37 

present  time  George  M.  Reynolds,  president  of  the  Continental 
and  Commercial  National  Bank,  is  Treasurer  of  the  South  Park 
Board,  and  all  of  the  South  Park  money  is  deposited  in  that 
bank.  B.  A.  Eckhart,  a  director  of  the  same  bank,  is  Treasurer 
of  the  West  Park  Board  and  practically  all  of  the  West  Park 
funds  are  also  deposited  therein.  Of  $1,463,836  of  West  Park 
funds  on  hand  October  1,  1911,  the  Continental  and  Commercial 
held  $1,361,666.  Theodore  Freeman,  a  director  of  the  State 
Bank  of  Chicago,  is  Treasurer  of  the  Lincoln  Park  Board  and 
all  of  th€  Lincoln  Park  funds  are  deposited  in  that  bank. 

The  sureties  furnished  by  the  park  treasurers  have  with 
few  exceptions  been  directors  or  officers  of  the  bank  of  which  the 
treasurer  was  an  officer.  The  depositories  have  thus  to  an  extent 
furnished  their  own  surety.  The  depository  is  sometimes  a  na- 
tional bank.  In  event  of  the  insolvency  of  such  an  institution  the 
stockholders  are  liable  for  an  amount  equal  to  their  holdings. 
Conditions  might  arise  when  such  a  liability  would  seriously  affect 
the  value  of  the  surety  behind  the  park  funds.  At  the  present 
time  the  treasurer  of  the  South  Park  Board  is  one  of  the  bonds- 
men for  the  treasurer  of  the  West  Park  Board  and  vice  versa. 

It  is  submitted  that  the  policy  of  accepting  personal  bonds- 
men is  bad  in  any  case;  also  that  it  is  bad  policy  to  keep  all  the 
funds  of  a  park  district  in  one  bank.  All  of  the  West  Park 
funds  were  in  the  National  Bank  of  Illinois  when  it  failed  in 
1896.  The  failure  cost  the  Park  Board  over  $50,000  in  legal 
fees  and  in  loss  of  interest. 

INTEREST  ON  DEPOSITS 

Each  of  the  three  large  Park  Boards  receives  2  per  cent,  in- 
terest on  the  average  daily  balances  of  its  checking  accounts  in 
bank. 

During  the  five  years  ending  April  1,  1911,  the  South  Park 
Board  had  on  deposit  in  bank  an  amount  never  less  than  $1,000,- 
000  and  the  monthly  average  of  which,  during  the  period,  was 
approximately  $1,800,000.  Of  this  amount  two  special  accounts 
averaging  about  $950,000  a  month  earned  3  per  cent,  interest 
but  only  2  per  cent,  was  received  on  the  remaining  portion.    The 


38  Chicago  Bureau  of  Public  Efficiency 

3  per  cent,  accounts  have  since  been  diminished  to  an  aggregate 
of  $190,000  and  $200,000  has  been  invested  in  4  per  cent, 
securities. 

During  1907  and  1908  the  West  Park  Board  received  2>4 
per  cent,  on  all  deposits,  but  since  January  1,  1909,  only  2  per 
cent,  has  been  received,  with  the  exception  that  $50,000  of  the 
proceeds  from  the  sale  of  the  million  dollar  bond  issue  in  1911 
has  been  left  with  the  purchaser  (a  local  bank)  at  3  per  cent, 
interest.  It  would  seem  that  a  larger  amount  might  have  been 
left  on  deposit  at  3  per  cent. 

The  County  Treasurer  as  ex-officio  town  supervisor  is  cus- 
todian of  the  money  realized  from  the  sale  of  small  park  bonds 
for  the  Lincoln  Park  Board  and  also  of  the  annual  tax  money 
levied  for  small  park  maintenance  in  the  towns  of  North  Chi- 
cago and  Lake  View.  No  interest  is  received  by  the  Park  Board 
on  this  money. 

The  South  Park  Board  not  only  receives  more  revenue  an- 
nually than  the  West  or  Lincoln  Park  Boards,  but,  by  virtue 
of  a  special  arrangement  with  the  County  Treasurer  (collector 
of  taxes)  it  receives  from  him  a  definite  amount  of  its  taxes 
regularly  each  month.  After  making  allowance  to  provide  for 
payment  of  bonds  and  interest  when  due,  the  Park  Board  with 
the  approval  of  the  County  Treasurer  prorates  the  balance  of 
the  South  Park  levy  over  each  month  and  a  draft  for  the  pro- 
rated amount  is  drawn  on  the  County  Treasurer  by  the  park 
officials  the  first  of  each  month.  This  method  deprives  the  Park 
Board  of  a  part  of  the  interest  received  by  the  County  on  de- 
posits of  the  park  taxes,  since  most  of  the  taxes  are  collected 
early  in  the  year,  but  still  gives  the  South  Park  Board  an  ad- 
vantage over  the  West  and  Lincoln  Park  Boards  in  this  respect. 
These  two  Boards  receive  their  taxes  only  when,  and  in  such 
amounts  as  may  be  needed  and  when  request  is  made  of  the 
County  Treasurer,  The  Secretary  of  the  West  Park  Board  goes 
in  person  to  the  County  Treasurer  from  time  to  time  and  obtains 
a  check  for  the  amount  needed.  This  method  keeps  the  cash 
balances  in  the  hands  of  the  West  and  Lincoln  Park  Board 
Treasurers  comparatively  small  and  enables  the  County  to  bene- 


The  Park  Governments  of  Chicago  39 

fit  by  most  of  the  interest  received  from  deposits  of  their  tax 
money.  The  South  Park  treasury,  on  the  other  hand,  is  kept  well 
filled. 

This  large  cash  balance  of  the  South  Park  Board  was  not 
made  possible  entirely  by  reason  of  the  regularity  of  tax  receipts. 
A  considerable  amount  was  derived  from  the  sale  of  bonds.  It 
appears  that  larger  issues  of  bonds  were  sometimes  sold  than 
were  necessary  at  the  time.  For  example,  a  $1,200,000  issue  was 
sold  in  July,  1907,  and  in  July,  1909,  two  years  later,  $700,000 
of  the  proceeds  was  yet  in  bank ;  in  fact,  three  years  later,  $600,- 
000,  one-half  of  the  proceeds,  was  yet  in  bank.  During  all  this 
time  the  Board  paid  4  per  cent,  interest  on  the  bonds  and  received 
only  3  per  cent,  on  the  cash  deposits.  It  thus  appears  that  if 
these  bonds  had  been  issued  in  smaller  lots  and  more  nearly  as 
required  approximately  $20,000  in  interest  charges  might  have 
been  saved. 

In  this  connection  the  recent  action  of  the  Lincoln  Park 
Board  in  disposing  of  the  $875,000  issue  of  park  extension 
bonds  is  commendable.  Although  the  entire  issue  was  sold  soon 
after  the  date  of  the  bonds  (May  1,  1911)  only  $350,000  has 
thus  far  been  delivered  (November  1,  1911).  As  the  bonds  are 
delivered  the  purchasers  pay  the  accrued  interest  to  the  Park 
Board. 

Although  part  of  the  South  Park  funds  earned  3  per  cent 
interest,  the  larger  proportion  thereof  was  carried  in  a  "gen- 
eral fund"  and  earned  only  2  per  cent,  on  daily  balances.  An 
examination  of  the  general  fund  account  shows  that  the  balance 
has  been  smallest  at  the  end  of  each  month  and  that  these  month 
end  balances  were  much  larger  than  was  necessary  to  meet  the 
demands  upon  the  fund.  For  example,  for  the  20  months  ending 
with  November,  1907,  the  general  fund  was  never  less  than  $1,- 
000,000.  (See  table  on  page  40.)  If  the  amount  of  money 
necessary  to  be  used  each  month  had  been  estimated  at  the  be- 
ginning of  each  month  and  part  of  the  excess  had  been  trans- 
ferred to  the  special  fund — say  in  round  amounts  of  $100,000 — 
the  additional  1  per  cent,  interest  which  might  thus  have  been 


40  Chicago  Bureau  of  Public  Efficiency 

received  would  have  amounted  to  approximately  $40,000  in  the 

five  years  ending  with  1910. 

Table  showing  balances  in  the  general  fund  of  the  South  Park  Board  at 
the  end  of  each  month  from  January,  1906,  to  August,  1911,  in- 
clusive : 

1906.  1907.  1908. 

January    $   862,541.61  $1,359,350.95  $   797,338.89 

February    777,792.33  1,216,469.40  684,939.77 

March    750,769.67  1,200,591.37  609,614.49 

April     1,080,947.75  1,512,768.03  1,227,576.93 

May    1,064,505.05  1,506,319.73  1,206,703.73 

June    1,263,677.57  1,473,577.60  1,294,635.32 

July   1,969,184.49  1,463,784.73  818,640.37 

August    1,815,840.50  1,358,110.74  604,988.72 

September   1,702,028.03  1,265,022.45  477,928.97 

October 1,627,847.17  1,204,967.42  501,238.20 

November   1,712,029.40  1,188,012.52  334,601.89 

December    1,511,534.27  981,910.03  301,217.64 

1909.  1910  1911. 

January    $  137,482.45        $    193,071.58        $     46,420.13 

February   247,578,91  23,616.13  254,639.12 

March    315,976.36  231,512.98  340,299.27 

April  697,552.85  737,061.54  397,454.64 

May    991,862.51  502,917.71  757,981.16 

June 436,701.68  437,366.18  734,798.68 

July   834,652.25  369,335.42  667,131.70 

August   651,058.11  147,431.80  592,170.09 

September   668,780.64  259,747.52 

October    627,709.37  137,548.65 

November    512,586.34  250,428.95 

December    414,749.02  44,553.18 

SPECIAL  FUNDS 

The  South  Park  Board,  in  March,  1908,  received  $94,359 
from  the  County  Treasurer  as  its  share  of  the  taxes  collected  at 
that  time  from  the  estate  of  Marshall  Field.  Of  this  amount, 
$2,012  was  placed  to  the  credit  of  the  Art  Institute  and  $92,347 
was  set  aside  as  a  special  reserve.  To  the  latter  amount  was 
added  $7,653  from  the  general  fund  so  that  the  special  reserve 
totaled  $100,000.  This  amount,  instead  of  being  used  to  reduce 
current  tax  levies,  has  since  remained  in  bank  as  a  special  deposit 
at  3  per  cent  interest. 

The  South  Park  Board  also  carries  a  reserve  of  approxi- 
mately $300,000  as  protection  from  losses  by  fire.  This  fund  is 
discussed  in  connection  with  insurance  of  park  structures, 
page  157. 


The  Park  Governments  of  Chicago  41 

The  West  Park  Board  has  maintained  a  special  fund  of  $40,- 
000  intact  since  1902.  It  consists  of  part  payment  by  the  County 
Treasurer  of  a  1901  tax  levy  which  was  subsequently  declared 
invalid.  The  ownership  of  the  fund  is  still  in  controversy  but 
nevertheless  the  Park  Board  has  collected  2  per  cent  annual  in- 
terest thereon  and  used  it  for  current  purposes.  Inasmuch  as 
the  South  Park  Board  is  able  to  secure  3  per  cent,  on  time  depos- 
its, this  fund  should  likewise  have  been  earning  3  per  cent. 

The  West  Park  Board  maintains  a  contingent  fund  which 
has  been  made  use  of  for  many  unbusiness-like  practices.  It 
originated  as  a  petty  cash  fund.  On  January  1,  1907,  it  amounted 
to  $2,115.  On  January  1,  1910,  it  had  been  increased  to  $5,805, 
and  during  1910  it  was  further  increased  to  $16,000.  Not  only 
has  the  privilege  of  obtaining  salary  advances  from  this  fund 
between  pay  days  been  abused  but  thousands  of  dollars  of  claims 
have  been  paid  therefrom  without  audit.  The  reason  advanced 
for  maintaining  so  large  a  fund  is  that  it  is  necessary  (1)  as  a 
means  of  paying  off  employees  discharged  between  pay  days;  (2) 
as  a  means  of  taking  advantage  of  cash  discounts,  and  (3)  as  a 
petty  cash  fund.  Practically  no  cash  discounts  were  taken  until 
the  Bureau  called  attention  to  the  matter  and  those  taken  since 
have  nearly  all  been  on  payments  from  the  general  fund.  It  is 
apparent,  however,  that  persons  in  a  hurry  for  money  due  them 
might,  if  they  had  sufficient  influence,  have  their  claims  paid 
from  the  contingent  fund  without  awaiting  audit.  The  fund 
has  no  relation  to  cash  discounts  as  they  may  be  had  by  allowing 
claims  to  take  the  regular  course  of  procedure.  Eliminating  pay- 
ments to  men  discharged  or  resigned  between  pay  days  the 
amount  advanced  from  this  fund  during  such  interims  in  1910  on 
account  of  salaries  and  wages  was  as  follows : 

To  office  employees  $11,589.70 

To  policemen 19,200.71 

To  other  employees  22,381.00 

Total $53,171.41 

Altogether  $111,062.89  was  expended  through  this  fund  in 
1910.  Salary  and  wage  payments  are  reimbursed  from  the  pay- 
masters'  fund  each  pay   day.     Payments   from   the  contingent 


42  Chicago  Bureau  of  Public  Efficiency 

fund  for  other  purposes  are  reimbursed  from  time  to  time  by 
checks  drawn  on  the  general  fund.  This  feature  is  further  dis- 
cussed on  page  55,  under  Auditing.  It  is  suggested  that  the 
fund  be  reduced  to  $500,  and  used  only  as  a  petty  cash  fund  and 
that  $5,000  be  allowed  to  the  paymaster  for  the  purpose  of  pay- 
ing off  discharged  employees.  Both  funds  should  be  reimbursed 
in  full  each  month. 

The  Lincoln  Park  Board  maintains  a  special  fund  known 
as  the  Ohio  Street  Extension  Fund.  During  June,  1891,  contract 
agreements  were  effected  between  the  Lincoln  Park  Board  and 
some  property  owners  along  the  lake  shore  for  the  extension  of 
Lake  Shore  Drive  from  near  Bellevue  Place  southerly  and 
easterly  to  the  north  line  of  Indiana  Street  over  lands  that  were 
at  the  time  covered  by  the  waters  of  the  lake.  The  work  was 
to  be  done  by  the  Park  Board  and  to  cover  the  cost  thereof, 
abutting  property  owners  were  to  pay  the  Board  $100  per  lineal 
foot  of  frontage.  The  Park  Board  agreed  to  refund  any  excess 
of  the  $100  per  foot  collected  over  the  cost  of  the  extension.  On 
December  31,  1910,  there  was  a  credit  balance  on  the  Lincoln 
Park  books  of  $19,900.60,  on  account  of  the  collections  Qver 
the  cost  of  the  work  to  date  and  the  Park  Board  was  responsible 
therefor  to  the  property  owners.  Although  this  balance  was  in 
the  nature  of  a  trust  account,  the  money  represented  by  it  was 
not  kept  in  possession  of  the  Park  Board  .  At  the  same  time 
that  the  books  showed  a  credit  balance  of  $19,900.60  the  cash 
actually  on  hand  as  shown  by  the  park  books  was  only  $3,793.93. 
The  treasury  was  replenished  soon  thereafter  in  excess  of  the 
amount  due  the  depositors,  but,  owing  to  the  fact  that  the  relation 
of  trustee  and  cestui  qui  trust  exists  between  the  Board  and  the 
depositors,  it  is  suggested  that  the  money  should  be  kept  in  a 
separate  deposit  from  the  other  park  funds. 

III.   TAXES  FOR  PARK  PURPOSES 


POWER  OF  PARK  BOARDS  TO  LEVY  TAXES 
Each  of  the  ten  park  governments  within  the  City  of  Chi- 
cago, except  the  Lincoln  Park  government,  is  a  municipal  cor- 


The  Park  Governments  of  Chicago  43 

poration  and  has  power  to  levy  taxes  direct.  The  inabiHty  of 
the  Lincoln  Park  Board  to  do  so  results  from  the  fact  that  the 
legislative  act  (1869)  under  which  it  was  created  was  never 
submitted  to  a  vote  of  the  people  of  the  towns  of  North  Chicago 
and  Lake  View.  Hence  it  is  that  the  taxes  for  park  purposes 
in  that  district  are  levied  each  year  by  the  corporate  authorities 
of  those  towns.  Three  of  the  legislative  acts  under  which  taxes 
for  park  purposes  in  the  West  Park  District  are  levied  provide 
that  the  levy  shall  be  made  by  the  town  of  West  Chicago.  The 
County  Clerk  as  ex-ofificio  town  clerk  and  assessor  and  the 
County  Treasurer  as  ex-officio  town  supervisor  comprise  the 
corporate  authorities  of  each  of  the  towns.  The  assessed  values 
in  each  town  for  1910  and  the  amount  of  taxes  levied  thereon 
are  shown  in  Table  C  of  the  Appendix  and  the  authorizations 
under  which  taxes  are  levied  for  each  park  district  are  set  forth 
in  detail  in  Table  G  of  the  Appendix.  As  may  be  seen  therefrom, 
the  multiplicity  of  authorizations  is  in  itself  conducive  to  con- 
fusion. The  South  Park  Board  levies  under  twelve  distinct  legis- 
lative authorizations,  the  West  Park  Board  under  eleven,  and  the 
Lincoln  Park  Board  under  six. 

The  seven  smaller  park  districts  within  the  City  of  Chicago 
all  derive  their  authority  to  levy  taxes  under  one  enabling  act 
passed  by  the  Legislature  in  1895. 

Twelve  and  eighty-one  hundredths  cents  (.1281)  of  each 
dollar  of  taxes,  assessed  in  1910  on  property  within  the  city 
limits,  was  for  the  park  districts.  This  amount  is  in  addition 
to  the  revenue  necessary  to  maintain  the  parks  under  the  Special 
Park  Commission  and  provided  each  year  out  of  the  city  levy. 

INCREASE  OF  PARK  TAXES  DUE  TO  CHANGE 
IN  ASSESSED  VALUES 

Prior  to  1909  the  amount  of  taxes  to  be  levied  in  Illinois 
was  determined  by  applying  the  tax  rate  to  one-fifth  of  the  full 
property  valuations.  This  one-fifth  value  was  therefore  called 
the  assessed  value.  The  bonding  power  of  Illinois  cities  is 
limited  to  5  per  cent,  of  the  "value  of  the  taxable  property" 
therein.    The  State  Supreme  Court  decided  that  the  term  "value" 


44  Chicago  Bureau  of  Public  Efficiency 

must  be  construed  as  the  assessed  value.  In  order  to  increase 
the  Hmit  of  bonding  power  of  cities,  the  Legislature  in  1909 
changed  the  assessed  value  from  one-fifth  to  one-third  of  the  full 
value.  The  aggregate  tax  rate  which  had  been  limited  to  5  per 
cent,  of  the  one-fifth  valuation  was  at  the  same  time  changed  to 
3  per  cent,  of  a  one-third  valuation  so  as  to  maintain  the  rate 
at  1  per  cent,  of  the  full  valuation.  There  were  some  exceptions 
to  this  latter  action,  however.  The  number  of  mills  which  the 
South  Park  Board  was  authorized  to  levy  was  not  changed,  but 
due  to  the  high  property  valuation  of  that  district,  the  effect  of 
the  change  of  basis  from  one-fifth  to  one-third  was  to  increase 
inordinately  the  amount  of  taxes  which  it  might  levy.  The 
increase  made  possible  ($758,007)  was  so  very  large  compara- 
tively that  the  South  Park  Board  did  not  venture  to  levy  the  full 
amount  in  1910.  What  it  actually  did  was  to  levy  exactly  one- 
half  of  the  increase  and  add  a  sufficient  amount  arbitrarily  to 
bring  the  total  to  round  numbers.  The  law  permits  a  levy  of 
}i  mill  for  museum  purposes  but  the  Board  has  no  present  use 
for  so  much  money  for  such  purposes  and  in  recent  years  has 
levied  only  ^  mill.  The  following  tabulation  may  elucidate  the 
procedure  followed  in  determining  the  amount  of  levy : 

Amount  of  levy  if  based  on  one-third  valuation $2,961,442 

Amount  of  levy  if  based  on  one-fifth  valuation 2,203,435 

Amount  of  increase  made  possible 758,007 

One-half  of  possible  increase  added 379,004 

Amount  arbitrarily  added  to  make  round  numbers 17,561 

Amount    actually    levied 2,600,000 

The  1909  statute,  although  it  did  not  change  the  4>4  mill 
rate  which  the  town  of  West  Chicago  may  levy  for  park  pur- 
poses, did  change  two  of  the  rates  levied  by  the  West  Park 
Board,  the  efifect  of  which  was  to  reduce  from  8  to  6  2/10  mills 
the  total  mill  tax  which  may  be  levied  by  the  latter.  The  reduc- 
tion did  not,  however,  offset  the  increased  levy  made  possible 
by  change  in  basis  to  one-third  of  the  valuation.  Since  the  West 
Park  levy  is  based  upon  the  valuation  of  the  current  year  the 
increase  made  possible  occurred  in  the  1909  levy  for  that  Board 
instead  of  in  the  1910  levy  as  in  the  case  of  the  South  Park 
Board.     The  increase  of   1909  over  1908  in  ainount  extended 


The  Park  Governments  of  Chicago 


45 


on  the  tax  rolls  by  the  County  Clerk  for  the  West  Park  Board 
was  $407,581.  This  was  an  increase  in  amount  over  the  taxes 
extended  in  1908  of  approximately  ZZ  1-3  per  cent,  or  the  same 
proportion  of  increase  which  the  South  Park  Board  obtained 
in  1910. 

The  statute  did  not  change  the  mill  tax  rates  which  are 
levied  for  the  Lincoln  Park  Board.  Aside  from  the  mill  taxes 
the  Lincoln  Park  Board  also  requests  a  lump  sum  amount  each 
year.  In  1909  an  unusually  large  amount  was  requested.  Owing 
to  the  increase  in  assessed  values  in  1909,  although  the  total 
Lincoln  Park  rate  as  computed  by  the  County  Clerk  was  lower 
than  formerly,  the  Board  actually  benefited  by  the  new  law  in 
that  their  1909  levy  was  extended  for  $1,049,545,  as  against 
$768,530  in  1908,  an  increase  of  $281,015,  or  36  per  cent. 

The  rate  of  levy  for  the  small  park  districts  (of  which  there 
are  now  seven)  was  not  changed  and  the  increase  in  assessed 
value  therefore  also  increased  the  amount  of  taxes  which  they 
may  levy. 

Although  each  district  is  enabled  by  the  new  statute  to  increase 
its  levy,  the  South  Park  District  alone  of  the  three  large  dis- 
tricts is  able  to  have  the  entire  amount  of  the  levy  extended  on 
the  tax  rolls.  In  fact,  as  shown  below,  the  amount  extended  on 
the  rolls  for  that  district,  and  also  for  five  of  the  small  districts, 
exceeded  in  1910  the  amount  levied  by  the  respective  Park 
Boards.  It  should  be  noted,  however,  that  the  increases  in  the 
levies  of  the  West  and  Lincoln  Park  Boards  in  1909  represent 
increases  in  amounts  actually  extended,  after  all  reductions  had 
been  made. 


Park 
District 


Amount  levied     Amount  actu-       Excess  of      Excess  of 
by  the  Park        ally  extended        levy  over     amomit  ex- 


Boards 


South    $2,600,000 

West    2,287,338 

Lincoln  1,125,521 


Fernwood 

Ridge    

Calumet  

Irving   

North    Shore. 
Ridge  Avenue 


3,608 
6,142 
112 
8,845 
10,479 
3,300 


on  tax  rolls,      amount  ex-    tended  over 


$2,601,159 

1,531,127 

990,239 

3,867 

6,542 

112 

9,256 

10,506 

3,544 


tended. 

s 

'  756,21  i 
135,282 


levy. 
$1,159 


259 

400 


411 

27 

244 


46  Chicago  Bwcaii  of  Public  Efficiency 

INEQUITY  OF  TAX  DISTRIBUTION 

The  tax  rate  used  in  extending  the  taxes  levied  by  the  sev- 
eral taxing  bodies  within  Cook  County  is  determined  by  the 
County  Clerk.  The  procedure  followed  is  for  each  taxing  body 
to  certify  to  the  County  Clerk  the  amount  of  taxes  levied  by  it. 
The  Clerk  thereupon  determines  the  rate  by  dividing  the  amount 
of  tax  levied  by  the  assessed  value  of  all  taxable  property  within 
the  jurisdiction  of  the  body  levying  the  tax.  The  rate  thus  ob- 
tained is  subject  to  the  limitation  that  the  aggregate  rate  of  all 
taxes  levied  within  any  given  territory  shall  not  (after  certain 
taxes  expressly  exempted  by  law  have  been  excluded)  exceed  3 
per  cent,  on  the  assessed  value  of  the  property  within  such  terri- 
tory. If  such  aggregate  rate  does  exceed  the  3  per  cent,  limit,  the 
County  Clerk  is  required  to  reduce  the  aggregate,  in  accordance 
with  the  terms  of  the  Juul  law,  so  as  to  bring  it  within  the  pre- 
scribed limit. 

Assessed  values  in  the  West  and  North  divisions  of  the  city 
are  comparatively  low,  while  the  valuations  of  the  South  divis- 
ion, which  contains  the  central  business  district  of  Chicago,  are 
high.  Since  the  assessed  values  in  the  respective  towns  are 
used  as  divisors  to  ascertain  the  rate  necessary  to  produce  the 
amounts  levied  by  the  several  taxing  bodies,  the  rates  are  natu- 
rally high  in  the  towns  of  the  West  and  North  divisions  and, 
in  the  determination  by  the  County  Clerk  of  the  aggregate  rate 
which  may  be  extended  under  the  Juul  law,  are  subjected  to  heavy 
reductions.  The  final  rates  for  park  purposes  are  not  sufficient 
when  applied  to  the  low  valuations  therein  to  produce  the  amounts 
requested  by  the  West  and  Lincoln  Park  Boards.  The  bond 
principal  and  interest  must  be  provided  for  first  and  the  scaling 
of  the  total  amounts  requested  reduces  in  every  instance  the 
amount  available  for  park  maintenance.  Because  of  the  high 
assessed  values  in  the  South  Park  district,  the  park  rate  therein 
is  not  subject  to  scaling  and  the  amount  requested  by  the  South 
Park  Board  is  hence  extended  in  full. 

The  extension  by  the  County  Clerk  of  the  South  Park  levy 
in  full  and  the  enormous  reduction  of  the  West  and  Lincoln 
Park  levies  is  due  to  the  fact  that  the  valuable  "loop  district" 


The  Park  Governments  of  Chicago  47 

is  all  included  within  the  South  Park  District  and  also  to  the 
peculiar  operation  of  the  Juul  law  (1901). 

Until  the  levies  of  all  the  local  taxing  authorities  are  re- 
ported to  the  County  Clerk  and  the  respective  rates  are  fixed 
by  him,  the  West  and  Lincoln  Park  Boards  have  no  way  of 
determining  how  much  revenue  will  be  derived  from  their  levies. 
The  taxing  conditions  practically  compel  the  West  Park  Board 
each  year  to  make  its  levy  as  high  as  possible  in  order  to  insure 
a  sufficient  income  for  bond,  interest,  and  maintenance  pur- 
poses. Such  unscientific  procedure  militates  seriously  against 
economical  financial  adminstration  of  the  park  systems. 

The  1910  property  valuations  within  the  three  large  districts 
and  the  balance  of  the  city  as  compared  with  taxes  assessed 
for  park  purposes  therein  and  the  population  thereof  is  as 
follows : 

Park                                        Taxable  Taxes  Population 

District                                     Property,  Assessed,  (1910) 

Per  cent.  Per  cent.  Per  cent. 

South    60.04  50.45  35.58 

West   21.98  29.69  41.31 

Lincoln  14.44  19.20  16.40 

Balance  of  city 3.54  .66  6.71 

Total   city    100  100  100 

If  the  South  Park  Board  levied  up  to  the  limit  allowed  them 
since  the  change  was  made  in  the  assessed  value  the  percentage 
shown  above  would  be  higher. 

SOUTH  PARK  BOARD  SPECIALLY  BENEFITED  IN  1909  LEVY 

Preceding  the  advantage  gained  by  the  South  Park  Board 
in  1910  by  reason  of  the  change  in  assessed  values,  that  Board 
also  benefited  by  $50,534  in  the  spreading  of  the  1909  levy.  The 
Park  Board  certified  $2,163,800  to  the  County  Clerk  which  was 
equivalent  to  a  rate  of  42.8,  but  the  County  Clerk  extended  $2,- 
224,442.  This  amount  was  determined  by  the  application  of  a 
44  cent  rate.  The  Bureau  has  been  unable  to  obtain  a  satisfac- 
tory explanation  of  this  increase.  It  was  not  added  to  care  for 
loss  and  cost  of  collection  as  the  Park  Board  had  already  in- 
cluded $85,000  for  that  purpose.  It  appears  that  a  rate  of  43 
instead  of  44  cents  should  have  been  levied  which  would  have 


48  Chicago  Bureau  of  Public  Efficiency 

produced  $2,173,908,  allowing  for  increase  through  the  operation 
of  extension. 

SOUTH  PARK  BOARD  ASKING  FURTHER  INCREASE  IN  191 1 

As  has  been  shown,  the  South  Park  district  was  specially 
benefited  in  1909  by  a  $50,000  increase  in  the  amount  extended 
and  in  1910  by  nearly  $400,000,  made  possible  by  the  failure  of 
the  Legislature  to  reduce  the  rates  of  that  park  district  when 
the  assessed  value  was  changed  from  one-fifth  to  one-third. 
An  examination  of  the  1911  levy  already  submitted  by  the  South 
Park  Board  shows  that  although  the  total  amount  requested  is 
the  same  as  for  1910;  i.  e.,  $2,600,000,  yet  this  is  in  fact  a 
further  increase  of  $45,000.  The  amount  levied  for  bond  and 
interest  purposes  in  1910  was  $681,425  and  for  loss  and  cost  of 
collection  $88,575.  Owing  to  the  payment  in  1910  of  part  of 
the  bonded  debt,  the  1911  levy  requests  only  $639,200  for  that 
purpose.  Also  only  $85,800  is  included  for  loss  and  cost  of  col- 
lection. This  reduction  of  $45,000,  however,  instead  of  being 
omitted  from  the  total  levy  is  again  brought  within  the  circle  by 
being  added  to  the  1911  levies  for  maintenance  purposes. 

The  actual  procedure  in  securing  this  result  is  shown  by  the 
following  table : 

lucres,  sp  Dpctpssp 

Authorization—                 1910  levy.  1911  levy.  of  1911.  of  1911. 

$300,000   tax    $   300,000  $   300,000  

3-mill    tax    1,224,000  1,260,000  $36,000         

M-mill  tax 204,000  210,000  6,000          

j4-mill  museum  tax   (%  mill 

tax   levied)     102,000  105,000  3,000         


Total   for   maintenance.  .$1,830,000  $1,875,000        $45,000         

Bond   and   Int.— 1890 25,625          $25,625 

—1901 36,000             35,000         1,000 

—1899") 

—1903  V 231,000            225,000         6.000 

—1901  J 

—1903 77,000             75,000         2,000 

—1905 202,000            197,000         5,000 

—1907.. 100,800              98,400         2,400 

200 


'  Zi909  ( 9,000  8,800 


Total  for  bonds  and  int..$   681,425        $   639,200         $42.225 

Loss  and  cost  of  collection.. $     88,575        $     85,800         $  2,775 

Totals $2,600,000        $2,600,000        $45,000        $45,000 


The  Park  Governments  of  Chicago  49 

LEVYING  SPECIAL  ASSESSMENTS 

Under  statutory  authority  the  South  and  West  Park  Boards 
may  each  act  as  a  board  of  local  improvements  and  levy  special 
assessments  for  the  initial  improvement  of  streets  and  boulevards 
under  their  control.  Both  Boards  have  from  time  to  time  levied 
special  assessments  in  that  way  and  also  collected  them. 

The  amount  of  special  assessments  collected  by  the  South 
and  West  Park  Boards  respectively  during  1910  was  $20,024  and 
$40,356.  Improvements  of  this  nature  in  the  Lincoln  Park  dis- 
trict have,  as  a  rule,  been  made  under  special  agreements  entered 
into  between  individual  property  owners  and  the  Park  Board. 

IV.    CENTRAL  ACCOUNTING  AND  AUDITING  CONTROL 


South  Park  Commissioners 

Following  closely  the  disclosures  by  the  Merriam  Commis- 
sion of  defects  in  the  accounting  and  auditing  system  of  the  City 
government  and  about  the  time  the  Chicago  Bureau  of  Public 
Efficiency  was  organized,  the  South  and  Lincoln  Park  Boards 
took  steps  to  improve  their  systems  of  accounts.  The  changes 
which  were  made  practically  all  took  place  during  the  period  of 
this  inquiry.  The  accounting  and  auditing  features  incident  to 
the  operation  by  the  several  Park  Boards  of  refectories,  boats, 
automobiles,  horse  service  and  repair  shops,  are  discussed  in 
subsequent  chapters. 

Such  further  criticisms  as  might  be  made  of  the  new  South 
Park  accounting  system  would  be  of  a  minor  character.  After 
the  installation  of  any  new  system,  changes  in  detail  are  often 
found  necessary.  The  changes  which  might  be  suggested  in  the 
new  South  Park  accounts  are  of  that  kind.  The  accounting 
forms  and  procedure  in  general  seem  well  designed  to  meet  the 
requirements  and  the  system  appears  to  be  operated  as  intended. 

West  Chicago  Park  Commissioners 

Since  the  present  inquiry  began  some  of  the  members  of  the 
West  Park  Board  have  been  agitating  the  improvement  of  the 


50  Chicago  Bureau  of  Public  Efficiency 

accounts  of  that  Board,  but  up  to  October  1,  1911,  nothing  had 
been  done.  There  are  several  defects  in  the  present  system  and 
they  are  noted  in  this  chapter.  Even  with  the  most  complete 
system  of  accounting  and  auditing,  however,  it  is  doubtful 
whether  better  results  could  be  secured  until  an  improved  esprit 
de  corps  is  obtained  in  the  West  Park  offices.  Equally  important 
with  changes  in  the  accounts  are  changes  in  organization  and 
personnel  as  suggested  in  the  chapter  entitled,  "Need  for  Reor- 
ganization." 

RECEIPTS 

Although  the  West  Park  Board  receives  notification  from  the 
County  Clerk  as  to  the  amount  of  taxes  extended  on  the  tax 
rolls  for  the  uses  of  the  West  Park  District,  no  entry  is  made 
thereof  on  the  park  books  until  the  end  of  the  fiscal  year.  The 
amount  is  then  posted  only  as  one  of  the  entries  necessary  to 
close  the  books  for  the  year.  Collections  are  transmitted  from 
the  County  Treasurer  from  time  to  time  during  the  year  and 
recorded.  Before  the  end  of  the  year  therefore  the  general  ledger 
does  not  reflect  the  amount  still  due,  although  it  is  one  of  the 
most  important  assets  of  the  Park  Board. 

Special  assessments  are  levied  by  the  commissioners  sitting 
as  a  board  of  local  improvements  and  the  collection  of  such  as- 
sessments is  accounted  for  in  a  set  of  books  separate  and  dis- 
tinct from  the  regular  park  books.  The  Assistant  Secretary 
acts  as  special  assessment  collector.  The  clerk  who  signs  the 
receipts  in  the  name  of  the  collector  is  not  bonded. 

An  examination  of  the  cash  book  shows  that  the  cash  be- 
longing to  the  general  fund  and  permit  fund  has  not  been  depos- 
ited in  bank  promptly  when  collected.  All  bank  deposits  made 
during  1909  and  1910  to  the  credit  of  the  general  fund  are  shown 
in  Table  A  of  the  Appendix,  together  with  the  amounts  on  hand 
at  the  dates  of  deposit,  and  the  amounts  not  deposited.  The  lat- 
ter often  aggregated  several  thousand  dollars.  Although  it  ap- 
pears that  the  money  was  retained  only  for  the  purpose  of  meet- 
ing contingent  fund  checks,  the  Bureau  suggests  that  the  prac- 
tice be  discontinued.  The  entire  daily  receipts  should  be  depos- 
ited promptly  in  bank  and  a  fund  of  reasonable  amount  pro- 


The  Park  Governments  of  Chicago  51 

vided  for  petty  disbursements.  In  this  connection  it  is  suggested 
also  that  cash  be  more  carefully  guarded  while  in  the  park  offices. 
One  employee  should  act  as  cashier  and  be  stationed  at  a  speci- 
fied desk  window  for  that  purpose.  The  cash  on  hand  should 
either  be  in  the  cashier's  cage  or  in  the  safe  which  stands  in  the 
vault.  As  an  illustration  of  the  laxity  which  has  prevailed  the 
following  excerpt  is  cited  from  the  daily  report  of  March  9,  1911, 
of  one  of  the  Bureau  accountants  assigned  to  the  West  Park 
offices : 

"About  10  a.  m.  a  property  owner  presented  $96.00  in  currency  in 
payment  of  a  special  assessment  installment.  WTiile  writing  out  a  receipt 
the  clerk  slipped  the  currency  into  his  vest  pocket,  which  he  often  does 
before  turning  it  over  to  the  assistant  secretary.  At  11 :30  he  left  the 
office  and  went  to  lunch.  At  2 :30  he  happened  to  put  his  hand  into  his 
vest  pocket  and  discovered  the  roll  of  bills." 

At  another  time  while  looking  for  canceled  boat  tickets  in 
the  drawers  of  the  vault  in  the  general  office  one  of  the  Bureau 
accountants  opened  a  drawer  close  to  the  door  and  noticed  a 
quantity  of  bills  and  silver  lying  loose.  Two  memoranda  showed 
the  amount  to  be  more  than  $250.  This  represented  money  re- 
ceived at  the  general  office  two  days  previous.  The  entrance  to 
the  vault  is  in  that  part  of  the  office  used  by  the  public.  Anyone 
can  enter  the  vault  by  manipulating  the  catch  on  the  door;  and, 
in  fact,  the  door  often  remains  open  for  a  considerable  time. 

EXPENDITURES 
Materials  and  Supplies. 

Electrical  stores  are  kept  in  separate  store  rooms  from  the 
general  stores  and  each  is  in  charge  of  a  separate  storekeeper. 
The  method  of  accounting  for  stores  is  cumbersome  and  con- 
ducive to  losses.  As  an  indication  of  the  lack  of  accounting  con- 
trol over  stores,  attention  is  called  to  the  fact  that  the  inventory 
of  general  stores  taken  December  31,  1909,  was  $27,957.92  in 
excess  of  the  balance  shown  by  the  book  account  therewith  and 
the  inventory  of  electrical  stores  was  $3,816.20  less  than  the 
balance  shown  by  the  book  account  with  the  electrical  stores. 
Adjustment  entries  for  these  amounts  were  made  arbitrarily  at 
that  time  in  order  to  bring  the  accounts  into  agreement  with  the 


52  Chicago  Bureau  of  Public  Efficiency 

valuation  of  the  physical  inventory.  Better  control  might  be 
exercised  over  stores  if  they  were  consolidated  in  one  building 
and  under  one  storekeeper.  It  is  suggested  that  a  stores  ledger 
be  kept  carrying  an  account  with  each  kind  of  material  and  sup- 
plies taken  into  stock.  These  accounts  should  show  both  quanti- 
ties and  costs.  The  stores  ledger  should,  of  course,  be  controlled 
through  a  stores  account  in  the  general  ledger. 

Contracts. 

In  order  to  ascertain  the  extent  of  performance  on  any  con- 
tract, amount  of  money  paid  thereon,  or  amount  yet  due,  it  is 
necessary  to  assemble  the  data  from  several  different  sources  and 
even  then  the  result  may  be  incorrect.  It  is  suggested  that  a 
contract  ledger  be  kept  which  shall  contain  an  account  with  each 
contract  awarded  and  show  price  and  amount  of  each  kind  of 
goods  or  services  included  within  the  contract,  the  quantity  and 
amount  ordered,  the  quantity  and  amount  delivered,  and  the  war- 
rants issued  in  payment.  This  book  should  also  show  at  all  times 
the  balance  not  ordered  on  each  contract  and  the  balance  not 
yet  paid.  The  contract  ledger  should,  of  course,  be  under  control 
through  the  general  ledger. 

Pay-Rolls. 

The  West  Park  Board  pay  all  employees  by  check.  The  fact 
has  already  been  cited  herein  that  the  present  Secretary  is  the 
actual  head  of  the  park  government.  He  strengthens  his  posi- 
tion on  the  West  side  politically  by  going  through  the  park  sys- 
tem in  his  automobile  each  pay  day  and  handing  the  checks  in 
person  to  the  several  hundred  employees.  The  Assistant  Sec- 
retary accompanies  him.  The  aggregate  salaries  of  these  two 
men  is  $7,500.  It  is  suggested  that  a  lower  salaried  employee, 
adequately  bonded,  should  act  as  paymaster.  The  checks  for 
men  who  do  not  appear  for  the  purpose  of  receiving  them  are 
left  sometimes  with  foremen  and  sometimes  with  other  men. 
Some  of  the  checks  are  taken  back  to  the  office  to  be  called  for. 
It  is  suggested  that  employees  who  do  not  receive  their  pay  from 
the  Paymaster  on  his  customary  visit  be  required  to  call  for  it  at 


The  Park  Governments  of  Chicago  53 

the  office.  There  has  been  a  large  loss  of  time  each  pay  day  by 
reason  of  employees  waiting  at  the  designated  assembling  places 
for  the  Secretary  to  arrive  with  the  pay  checks.  Most  of  the 
time  now  lost  might  be  saved  if  on  the  morning  of  each  pay  day 
the  persons  in  charge  at  the  several  parks  were  advised  by  tele- 
phone as  to  the  approximate  time  the  Paymaster  would  arrive 
there. 

The  plan  of  requiring  each  laborer  to  wear  a  numbered 
badge  was  perfected  during  the  present  year  and  aids  in  identifi- 
cation, as  the  respective  numbers  appear  opposite  the  names  in 
the  office  roster  and  on  the  pay-roll. 

Cost  Accounting. 

Cost  ledger  forms  are  operated  which  purport  to  reflect  the 
expense  of  the  several  park  functions  and  activities.  Examina- 
tion showed,  however,  that  several  of  the  accounts  therein  were 
incorrect  and  the  ledger  totals  did  not  agree  with  the  general 
ledger  controlling  accounts.  If  properly  kept,  the  distribution 
of  cost  is  of  great  value  in  determining  efficiency  and  economy 
of  past  work  and  also  as  a  guide  for  future  action.  A  simple 
and  reliable  plan  is  to  work  out  a  general  classification  and  code 
for  the  several  items  of  cost  and  have  this  classification  available 
in  printed  pamphlet  form.  Each  requisition  should  then  bear 
the  code  number  of  the  cost  account. 

Auditing. 

After  an  invoice  has  been  checked  by  a  clerk  as  to  mathe- 
matical accuracy  and  O.  K'd  as  to  prices  by  the  purchasing  agent 
and  as  to  fact  of  delivery  by  some  one  supposed  to  know  of  such 
fact,  the  essential  features  of  the  invoice  are  copied  on  a  standard 
form  of  voucher.  These  vouchers  accumulate  until  just  before 
the  next  Board  meeting  when  they  are  listed,  and  the  list  is 
submitted  to  the  Board  for  action.  Each  commissioner  receives 
a  copy  of  the  list.  Action  by  the  Board  is  only  perfunctory.  On 
motion  the  vouchers  are  referred  to  the  Finance  Committee  with 
power  to  act.  Although  the  signatures  of  each  of  the  three 
members  of  the  committee  are  required  on  vouchers,  it  is  to  be 


54  Chicago  Bureau  of  Public  Efficiency 

noted  that  the  members  take  no  action  as  a  committee.  All 
vouchers  except  those  on  which  a  cash  discount  may  be  obtained 
are  sent  to  the  down  town  office  of  the  Auditor  and  to  each 
member  of  the  committee  for  signature.  Until  the  beginning 
of  the  present  inquiry,  the  Board  did  not  take  advantage  of  cash 
discounts  which  since  have  averaged  at  least  $100  a  month.  At 
the  present  time  warrants  are  submitted  with  all  vouchers  sub- 
ject to  discount  and  both  are  signed  except  by  the  Treasurer  on 
the  day  of  the  Board  meeting. 

Not  only  is  there  no  audit  by  the  Board  or  by  the  Finance 
Committee,  but  the  Auditor  does  not  sign  the  vouchers  until  they 
are  presented  to  him  after  being  referred  to  the  Finance  Com- 
mittee. Until  the  present,  inquiry  was  begun,  the  vouchers  were 
not  even  approved  by  the  purchasing  agent  as  to  prices  until 
after  they  had  been  referred  to  the  Finance  Committee. 

Five  signatures  are  now  required  on  vouchers,  namely,  three 
members  of  the  Finance  Committee  (one  of  whom  is  the  presi- 
dent), the  Auditor,  and  the  Treasurer  and  four  on  warrants, 
namely,  President,  Auditor,  Treasurer  and  Secretary.  The  value 
of  so  many  signatures  is  not  apparent.  The  large  number  per- 
mits the  evasion  of  responsibility  instead  of  definitely  fixing  it. 
The  securing  of  so  many  signatures  tends  also  to  clog  the  ma- 
chinery and  by  delaying  payment  of  claims,  militates  against  the 
securing  of  lowest  prices.  The  suggestion  is  made  in  this  report 
that  a  competent  chief  accountant  be  placed  in  charge  of  the 
accounting  and  auditing  work.  When  this  is  done  claims 
certified  by  such  officer  and  countersigned  by  the  statutory 
Auditor  should  suffice  for  payment  thereof.  Time  might  be 
saved  by  the  adoption  of  a  voucher-invoice  similar  to  that  used 
by  the  city  or  of  a  voucher-check.  The  South  and  Lincoln  Park 
Boards  each  use  a  form  of  voucher-check. 

The  West  Park  Board  notifies  vendors  by  mail  when  checks 
are  ready  for  distribution  and  each  vendor  must  then  go  in  person 
to  the  offices  in  Union  Park  for  the  check  or  send  an  agent.  The 
form  of  voucher-check  recently  adopted  by  the  Lincoln  Park 
Board  is  specially  appropriate  for  use  in  mailing  checks.  Sending 
checks  by  mail  disposes  of  claims  more  expeditiously  and  should 


The  Park  Governments  of  Chicago  55 

operate  to  secure  lower  prices  after  dealers  become  aware  of  the 
new  conditions.    It  saves  them  both  annoyance  and  expense. 

Persons  whose  claims  have  been  delayed  in  audit  and  others 
whose  claims  may  not  have  been  delayed  but  who,  nevertheless, 
were  able  to  obtain  early  payment  have  been  paid  from  the 
contingent  fund.  Large  amounts  have  also  been  advanced  from 
this  fund  to  an  employee  for  use  in  purchasing  supplies  and  no 
sufficient  evidence  required  as  to  the  disposition  of  such  amounts. 
From  time  to  time,  vouchers  and  warrants  drawn  on  the  general 
fund  for  lump  sum  amounts  and  payable  to  the  contingent  fund 
have  been  presented  to  the  Board  for  approval  in  order  to  reim- 
burse the  contingent  fund.  In  1910,  $34,955.01  was  thus  ex- 
pended from  the  contingent  fund.  On  December  31,  1910,  there 
was  yet  due  the  contingent  fund  on  account  of  such  expenditures 
the  sum  of  $9,806.96.  Vouchers  for  the  latter  amount  had  not 
yet  been  presented  to  the  Board,  although  the  original  expendi- 
tures extended  over  the  entire  year  1910  and  even  back  into  1909. 
Moreover,  on  September  1,  1911,  $6,674.27  still  remained  un- 
vouchered,  some  of  it  having  been  expended  twenty  months 
previously.  The  Board  had  no  official  knowledge  of  these  ex- 
penditures, and  the  checks  drawn  on  the  contingent  fund  were 
signed  only  by  the  Secretary.  The  intent  of  the  Board  to  per- 
sonally inspect  all  claims  preceding  payment  has  thus  been  de- 
feated in  a  considerable  degree.  An  efficient  auditor  is  needed. 
Laxity  in  the  use  of  this  fund  made  possible  the  practices  per- 
petrated in  connection  with  the  purchase  of  repairs  for  automo- 
biles described  on  page  122. 

In  General. 

While  the  Bureau  has  made  no  audit  of  the  West  Park 
books  the  fact  was  apparent  that  the  accounting  and  auditing 
had  been  carelessly  performed.  For  example,  on  September  1, 
1911,  no  postings  had  been  made  to  the  general  ledger  since  May 
31  and  no  trial  balance  taken  off  since  April  30. 

Old  books  of  record,  documents,  reports,  etc.,  have  for  many 
years  been  dumped  in  a  vault  in  the  office  basement.  The  door 
was  not  locked  nor  even  closed.     No  one  knew  of  what  the 


56  Chicago  Bureau  of  Public  Efficiency 

jumble  consisted.  While  the  Bureau  was  engaged  in  examining 
the  accounts  the  door  was  repaired,  the  contents  of  the  vault 
listed  and  arranged  in  order. 

Lincoln  Park  Commissioners 

While  the  Lincoln  Park  system  of  accounts  is  now  better 
adapted  to  the  needs  of  the  Board  than  formerly  there  are  still 
some  defects  which  should  be  remedied  and  to  which  attention 
is  therefore  directed. 

RECEIPTS 

The  omission  of  the  West  Park  Board  to  include  in  its 
accounts  as  a  current  asset  the  amount  due  from  the  County 
Treasurer  has  already  been  noted.  The  same  criticism  applies 
to  the  accounts  of  the  Lincoln  Park  Board.  For  the  current 
information  of  the  Board,  it  is  suggested  that  a  controlling  ledger 
account  be  maintained  with  the  County  Treasurer  which  will  be 
charged  with  amounts  extended  on  the  tax  rolls  for  the  Lincoln 
Park  Board  and  with  sales  by  the  County  Treasurer  of  Lincoln 
Park  bonds.  The  account  should  be  credited  with  the  amounts 
received  from  the  County  Treasurer  or  paid  out  by  him  for  pur- 
poses of  the  Board. 

Amounts  advanced  from  the  general  fund  for  small  park 
and  park  extension  purposes  are  an  asset  of  the  general  fund 
and  should  so  appear  on  the  books  and  on  statements  produced 
therefrom.    This  has  not  been  done. 

EXPENDITURES 
Materials  and  Supplies, 

Each  month  the  Superintendent  prepares  and  presents  to  the 
Board  for  approval  an  estimate  of  the  amounts  required  for 
supplies  during  the  ensuing  month.  Until  the  beginning  of  this 
inquiry,  these  estimates  were  filed  in  a  scrap  book  and  no  further 
use  made  of  them  as  a  medium  for  control.  The  actual  cost  of 
supplies  during  a  month  was  sometimes  more  than  twice  the 
amount  approved  by  the  Board.  Since  attention  was  called  to 
the   condition,   a  memorandum   record   has   been   kept   wherein 


The  Park  Governments  of  Chicago  57 

amounts  expended  each  month  for  suppHes  have  been  assembled 
in  columns  arranged  with  captions  corresponding  to  the  estimate 
items.  This  distribution,  however,  has  likewise  been  of  no  prac- 
tical use.  Not  only  has  no  comparison  of  amounts  actually  ex- 
pended been  made  with  the  estimates  as  approved,  but  the  col- 
umns of  the  distribution  sheet  have  not  even  been  footed.  Tests 
made  by  the  Bureau  showed  that  the  amounts  expended  for 
certain  items  often  exceeded  the  estimates  approved  therefor. 

Until  control  through  a  standardized  budget  is  established 
the  present  method  may  serve  as  an  expedient  if  carried  to  a 
logical  conclusion.  To  obtain  proper  results,  however,  the  col- 
umnar distribution  sheet  already  installed  should  be  footed  at 
the  end  of  each  month,  totals  arranged  in  statement  form  and 
submitted  to  the  Board  at  the  next  meeting  as  a  report  on  the 
fidelity  with  which  the  estimates  have  been  observed.  These 
statements  should  show  in  parallel  columns  the  estimates  ap- 
proved and  actual  expenditure  for  each  item. 

The  Lincoln  Park  Board  does  not  keep  its  stores  in  one 
central  storehouse.  In  addition  to  the  general  storeroom,  a  stock 
of  supplies  is  also  kept  on  hand  by  the  electrical  department  and 
by  the  mechanical  and  repair  department.  A  stores  ledger  is 
maintained  with  each  of  these  but  until  1911  these  ledgers  were 
not  under  any  central  control.  A  stores  account  was  carried 
in  the  general  ledger  as  an  expense  account.  Only  debit  entries 
were  posted  thereto,  including  salaries  of  storekeepers  and  the 
entire  amount  was  charged  off  at  the  end  of  the  year.  It  is  sug- 
gested that  the  general  and  mechanical  stores  be  placed  in  charge 
of  one  storekeeper  and  controlled  through  one  stores  account  in 
the  general  ledger  in  the  central  office.  This  account  should,  of 
course,  be  operated  as  a  capital  account  and  adjusted  periodically 
to  agree  with  physical  inventories.  The  supplies  used  in  the 
stable,  laundry  and  garage  should  also  clear  through  the  ac- 
counts of  the  storekeeper. 

Contracts. 

There  is  the  same  lack  of  current  information  with  respect 
to  performance  and  liability  on  contracts  as  at  the  offices  of  the 
West  Park  Board.     It  is  suggested  that  a  separate  ledger  be 


58  Chicago  Bureau  of  Public  Efficiency 

kept  containing  a  separate  account  with  each  contract  as  described 
on  page  52. 

Expense  Accounting. 

There  is  the  same  need  for  an  accurate  distribution  of  costs 
of  the  Lincoln  Park  Board  as  of  the  costs  of  the  other  park 
boards  and  a  cost  ledger  similar  to  that  already  outlined  for 
the  West  Park  Board  is  suggested  for  adoption. 

Pay-Rolls. 

During  1911  changes  were  made  in  the  methods  of  securing 
reports  on  the  time  of  employees  and  in  making  up  pay-rolls. 
The  former  were  defective  in  several  ways  which  have  been 
remedied  under  the  new  methods. 

Auditing. 

After  invoices  have  been  approved  as  to  prices  and  delivery, 
they  are  entered  on  a  standard  form  of  voucher-check  (recently 
adopted).  The  supporting  invoices  are  attached  thereto  and 
the  vouchers  signed  by  the  bookkeeper  and  secretary.  They 
are  then  sent  for  signature  to  the  down  town  offices  of  the  mem- 
bers of  the  committee  or  committees  having  supervision  over  the 
expenditure  and  also  to  the  Auditor  and  President.  At  the  time 
the  Auditor,  President  and  Secretary  sign  a  voucher,  they  also 
sign  the  check  attached  thereto.  There  are  thus  seven  signatures 
and  sometimes  ten  on  a  voucher  and  three  on  a  check.  It  is 
elsewhere  suggested  in  this  report  that  the  Chief  Accountant  and 
Secretary  be  made  the  official  auditor  of  the  Board.  If  this  is 
done,  it  is  believed  that  his  signature  on  vouchers  and  checks 
countersigned  by  the  President  would  be  a  sufficient  safeguard. 
Invoices  should,  of  course,  carry  the  signatures  of  the  persons 
approving  the  claims  as  to  prices  and  deliveries.  In  this  con- 
nection it  is  important  that  all  delivery  slips  be  forwarded 
promptly  from  points  of  delivery  to  the  central  office  for  use 
in  auditing.     This  has  not  been  done. 

Pay-rolls  of  the  respective  labor  gangs  are  now  certified  by 
the  foreman  and  signed  by  the  clerk  making  the  extensions  pre- 
ceding the  signing  of  the  rolls. 


The  Park  Governments  of  Chicago  59 

SUMMARY  AND  CONCLUSIONS  OF  PART  ONE 

Board  Meetings. 

1.  The  Bureau  believes  that  all  meetings  of  the  Park 
Boards  should  be  held  at  the  respective  park  offices.  Prior 
to  1909,  the  Lincoln  Park  Board  held  most  of  its  regular 
monthly  meetings  in  private  offices  down  town.  During 
the  last  five  years  special  meetings  of  the  Lincoln  and 
South  Park  Boards  and  also  many  adjourned  regular  meet- 
ings of  the  latter  have  been  held  in  various  down  town 
offices.  Matters  of  much  public  importance  were  often 
acted  upon  at  these  adjourned  and  special  meetings,  to  the 
practical  exclusion  of  the  public. 

2.  The  Park  Boards  and  Committees  thereof  often 
hold  executive  sessions.  Practically  all  of  the  delibera- 
tions of  the  West  Park  Board  are  conducted  behind  closed 
doors.  Having  determined  in  executive  session  what  ac- 
tion is  to  be  taken,  the  formalities  of  adoption  are  gone 
through  in  open  session.  With  rare  exception  there  should 
be  no  need  for  such  secrecy.  The  Bureau  contends  that 
public  business  should  be  transacted  publicly. 

3.  The  West  Park  Board  publishes  its  proceedings  as 
recorded  in  printed  pamphlet  form.  The  South  and  Lin- 
coln Park  Boards  are  the  only  public  governing  bodies  in 
Chicago  spending  any  considerable  amount  of  money  that 
do  not  publish  official  proceedings  of  meetings.  The  ex- 
pense to  these  boards  of  currently  publishing  their  pro- 
ceedings would  be  comparatively  small,  and  the  Bureau 
suggests  that  it  be  done.  At  present  the  proceedings  do 
not  receive  that  degree  of  publicity  desirable  for  public 
business. 

4.  Ordinances  have  frequently  been  passed  by  each  of 
the  three  large  Park  Boards  on  first  reading  at  the  first 
meeting  at  which  they  were  presented.  Many  of  these 
park  ordinances  are  of  much  public  importance  and  such 
hasty  action  prevents  the  public  from  becoming  informed 
as  to  the  proposed  action  until  too  late  to  voice  objection 


60  Chicago  Bureau  of  Public  Efficiency 

if  it  should  seem  desirable  to  do  so.  The  Bureau  suggests 
that  each  board  adopt  a  rule  that  no  ordinance  be  passed 
at  the  same  meeting  at  which  it  is  presented  and  not 
until  a  copy  of  the  proposed  ordinance  has  been  published 
in  the  official  proceedings. 

General  Financial  Methods. 

1.  The  annual  expenditures  of  the  Lincoln  Park  Board 
are  based  on  an  annual  estimate  or  budget,  which  is 
formally  adopted  each  year  preceding  the  making  of  a 
tax  levy,  and  is  subsequently  revised  to  conform  thereto 
in  amount.  It  serves  as  a  financial  guide  throughout  the 
year.  The  South  Park  Board  adopts  a  budget  similar  to 
that  of  Lincoln  Park,  but  does  not  do  so  until  nearly  a 
year  after  the  tax  levy  has  been  made  and  several  months 
after  the  collection  and  expenditure  of  the  taxes  have 
begun.  The  West  Park  Board  adopts  no  estimate  or 
budget  whatsoever,  except  as  each  piece  of  new  work  is 
planned. 

2.  Sound  business  principles  demand  that  a  definite 
financial  plan  be  adopted  by  each  Park  Board  at  the  be- 
ginning of  each  year  as  a  guide  for  that  year,  and  that 
the  plan  adopted  be  adhered  to.  Moreover,  the  public 
is  entitled  to  know  at  the  beginning  of  each  year  how  the 
Park  Boards,  which  are  public  bodies,  propose  to  expend 
the  millions  of  dollars  with  which  they  are  entrusted. 

3.  Bonds  issued  by  or  for  the  benefit  of  the  park  dis- 
tricts do  not  command  as  high  a  price  in  the  bond  market 
as  bonds  of  the  City  government  or  of  Cook  County,  which 
fact  is  another  argument  for  consolidation  of  the  park 
districts  with  the  city.  Some  of  the  bonds  which  appeared 
to  have  been  sold  at  a  premium  have  in  fact  netted  less 
than  par.  This  was  usually  occasioned  by  allowing  pur- 
chasers of  bonds  to  defer  payments  therefor  either  without 
interest  or  at  a  low  rate  of  interest.  The  million  dollar  4 
per  cent,  bond  issue  put  out  by  the  West  Park  Board  in 
1911,  which  appeared  to  have  sold  at  par,  was  in  fact 


The  Park  Governments  of  Chicago  61 

sold  at  1  per  cent,  less  than  par,  because  a  fee  of  $9,933 
for  legal  services  was  allowed  the  purchaser. 

4.  It  has  been  customary  for  each  Park  Board  to  ap- 
point as  treasurer  either  a  director  or  an  officer  of  a  Chicago 
bank.  The  treasurers  have  usually  kept  all  of  the  park 
funds  in  the  banks  with  which  they  were  connected.  Per- 
sonal sureties  have  been  accepted  for  the  treasurers,  and 
these  sureties  have  with  few  exceptions  been  officers  of 
the  banks  in  which  the  funds  were  deposited.  At  the  pres- 
ent time  the  treasurer  of  the  South  Park  Board  is  one  of 
the  bondsmen  for  the  treasurer  of  the  West  Park  Board 
and  vice  versa.  The  Bureau  believes  it  is  preferable  for 
the  Park  Boards  to  require  surety  companies  for  bonds- 
men rather  than  to  accept  individuals  as  sureties.  It  surely 
is  impolitic  for  a  Park  Board  to  keep  all  of  its  funds  in 
one  bank. 

5.  The  Bureau  does  not  approve  of  the  method  used  in 
transmitting  money  from  the  County  Treasurer  (tax  col- 
lector) to  the  Park  Boards.  The  County  Treasurer  re- 
ceives most  of  the  taxes  from  property  owners  during  the 
early  part  of  each  year,  but  does  not  transmit  the  money 
to  the  Park  Boards  at  that  time.  The  South  Park  Board 
draws  a  draft  on  the  first  of  each  month  for  a  pro  rata 
monthly  amount,  and  the  West  and  Lincoln  Park  Boards 
are  given  money  only  as  they  request  it  from  time  to  time 
during  the  year.  This  method  enables  the  County  Treas- 
urer to  secure  interest  for  the  county  on  the  park  funds 
and  to  that  extent  prevents  the  Park  Boards  from  receiv- 
ing interest  thereon. 

6.  The  South  Park  Board  has  had  a  much  larger  cash 
balance  on  hand  than  the  other  Park  Boards.  During  the 
five  years  from  April  1,  1906,  to  April  1,  1911,  that  Board 
had  on  deposit  in  bank  an  amount  never  less  than  $1,000,- 
000,  and  averaging  nearly  $2,000,000.  Part  of  this 
amount  brought  3  per  cent,  interest,  but  the  remaining 
balance  brought  only  2  per  cent.  The  average  aggregate 
monthly  balance  of  the  3  per  cent,  accounts  during  the 


62  Chicago  Bureau  of  Public  Efficiency 

five  years  was  approximately  $950,000.  If  the  amount 
in  the  2  per  cent,  accounts  of  the  South  Park  Board  had 
been  kept  within  $100,000  and  the  other  portion  trans- 
ferred monthly  to  the  3  per  cent,  accounts,  approximately 
$40,000  additional  interest  would  have  been  received  dur- 
ing the  five  years. 

7.  A  forcible  reason  for  consolidating  the  park  govern- 
ments with  the  city  government  is  afforded  by  the  fact 
that  during  the  same  period  that  the  Park  Boards  were 
receiving  only  2  per  cent,  on  their  cash  balances,  the  city 
government  was  compelled  to  borrow  money  each  year  to 
meet  current  expenses  and  to  pay  4  per  cent,  interest 
thereon, 

8.  When  large  cash  balances  are  maintained  by  the 
Park  Boards,  more  than  2  per  cent,  interest  should  be 
received  thereon,  especially  as  the  banks  holding  park 
funds  have  not  been  required  to  furnish  sureties  therefor. 
The  city  government  receives  2^4  per  cent,  interest  on  all 
of  its  funds,  even  though  the  banks  in  which  the  city 
funds  are  deposited  are  required  to  furnish  sureties. 

9.  The  South  Park  Board  has  sold  its  bonds  sooner 
than  necessary,  and  by  receiving  only  2  or  3  per  cent,  on 
the  proceeds  thereof,  while  paying  4  per  cent.,  a  large 
amount  of  interest  has  been  wasted.  For  example,  if  the 
$1,200,000  of  bonds  which  were  sold  in  July,  1907,  had 
been  sold  under  arrangement  whereby  the  bonds  might 
have  been  delivered  at  different  times  when  the  money  was 
needed,  approximately  $20,000  in  interest  could  have  been 
saved. 

10.  In  1908  the  South  Park  Board  received  $92,000 
from  the  Marshall  Field  estate.  To  this  amount  was 
added  enough  to  make  $100,000,  which  was  then  set  aside 
as  a  special  fund,  but  for  no  particular  purpose.  The 
Park  Board  receives  taxes  each  year,  and  there  is  no 
necessity  for  hoarding  money,  yet  the  fund  is  still  held 
intact.  Public  duty  would  seem  to  demand  that  it  be  used 
in  lieu  of  bond  issues,  or  to  decrease  the  tax  levy. 


The  Park  Governments  of  Chicago  63 

Taxes  for  Park  Purposes. 

1.  Taxes  are  levied  by  each  of  the  ten  park  boards 
within  the  city,  except  Lincoln  Park  Board,  the  levies  for 
which  are  made  by  the  towns  of  North  Chicago  and  Lake 
View. 

2.  The  confusion  incident  to  the  multiplicity  of  taxing 
districts  is  increased  by  the  multiplicity  of  legislative 
authorizations  under  which  the  taxes  of  each  district  are 

'  levied.  For  example,  the  South  Park  Board  levies  under 
twelve,  the  West  Park  Board  eleven  and  the  Lincoln  Park 
Board  (by  the  towns)  under  six  distinct  legislative  author- 
izations. 

3.  The  amount  of  the  tax  levy  which  the  South  Park 
Board  certified  to  the  County  Clerk  in  1909  was  equivalent 
to  42.8  cents  on  each  $100  of  assessed  value  of  the  tax- 
able property  of  the  South  Park  district.  In  extending 
the  levy,  instead  of  applying  the  next  highest  round  figure 
rate  which  would  have  been  43  cents,  the  County  Clerk 
applied  a  rate  of  44  cents,  which  gave  the  South  Park 
Board  approximately  $50,000  more  than  they  would  other- 
wise have  had.  The  Bureau  has  been  unable  to  obtain  a 
satisfactory  explanation  of  this  increase. 

4.  It  was  understood  by  the  public  that  the  change  in 
valuation  from  1/5  to  1/3,  made  in  1909  for  the  purpose 
of  increasing  the  debt  limit  of  municipalities,  would  not 
increase  taxes.  Due  to  the  fact,  however,  that  the  val- 
uation was  changed  without  changing  the  tax  rate  of  the 
Park  Boards,  they  were  enabled  to  increase  the  amount  of 
their  tax  levies  by  approximately  one-third.  The  South 
Park  Board  had  power  in  1910  to  increase  its  levy  $758,007 
over  the  amount  levied  the  previous  year.  The  Board  did 
not  venture  to  ask  for  so  exorbitant  an  amount  but  it  did 
take  advantage  of  the  defect  of  the  law  by  levying  an 
increase  of  $396,565,  bringing  the  total  levy  for  the  South 
Park  district  up  to  $2,600,000. 

5.  Although  the  South  Park  Board  thus  benefited  by 


64  Chicago  Bureau  of  Public  Efficiency 

special  increases  of  $50,000  in  1909  and  nearly  $400,000 
in  1910,  the  1911  levy  contains  a  still  further  increase  of 
$45,000. 

6.  The  South  Park  Board  has  not  only  levied  an 
increased  amount  each  year,  but,  owing  to  the  peculiar 
and  inequitable  operation  of  the  Juul  law  it  is  the  only 
one  of  the  three  large  park  governments  for  which  the 
entire  amount  levied  is  actually  extended  on  the  tax 
rolls.  While  the  amounts  levied  by  the  West  and  Lin- 
coln Park  Boards  in  1910  were  reduced  $756,211  and 
$135,282,  respectively,  when  extended  on  the  tax  rolls,  the 
amounts  extended  for  the  South  Park  district  and  for  five 
of  the  small  park  districts  exceeded  the  amounts  levied. 

7.  The  change  of  assessed  values  from  1/5  to  1/3, 
without  changing  the  tax  rates,  operated  to  increase  the 
amounts  which  might  be  levied  by  the  West  and  Lincoln 
Park  Boards,  so  that  even  after  the  reductions  described 
above  were  made  in  their  levies,  the  amounts  extended  for 
these  Boards  respectively  on  the  1909  tax  rolls  were  $407,- 
581  and  $281,015  greater  than  the  amounts  extended  in 

:  1908. 

8.  The  inequitable  distribution  of  taxes  for  park  pur- 
poses to  the  south,  west  and  north  sides  of  the  city  under 
the  present  park  organization  may  be  illustrated  as  fol- 
lows: Although  the  South  Park  district  contains  only 
36  per  cent,  of  the  total  population  of  the  city  it  contains 
60  per  cent,  of  the  taxable  property  and  receives  50 
per  cent,  of  the  taxes  for  park  purposes.  On  the  other^ 
hand,  the  West  Park  district  contains  41  per  cent,  of  the 
population,  only  22  per  cent,  of  the  taxable  property, 
and  receives  30  per  cent,  of  the  taxes  for  park  purposes. 

9.  The  unequal  distribution  of  park  taxes  among  the 
three  sections  of  the  city  is  due  (a)  to  the  fact  that 
the  valuable  "loop  district"  is  all  included  in  the  South 
Park  district  and  (b)  to  the  peculiar  operation  of  the  Juul 
law.    Consolidation  of  all  the  park  governments  with  the 


The  Park  Governments  of  Chicago  65 

city  government  and  the  application  of  a  uniform  tax  rate 
to  the  aggregate  valuation  should  remedy  the  present  in- 
equitable conditions. 

Central  Accounting  and  Auditing  Control. 

1.  The  new  accounting  system  installed  by  the  South 
Park  Board  in  1910-11  is  well  adapted  to  the  requirements 
and  is  being  operated  effectively. 

2.  The  Lincoln  Park  accounting  system,  as  recently  re- 
vised, is  an  improvement  over  the  former  system,  but  like 
that  of  the  West  Park  Board  should  be  extended  to  in- 
clude better  control  over  supplies  in  storerooms,  accurate 
cost  accounting,  and  accounts  showing  the  performance 
and  liability  on  each  contract. 

3.  Auditing  by  the  Park  Boards,  by  committees  thereof 
and  by  statutory  auditors  has  been  largely  perfunctory.  It 
should  be  done  by  an  experienced  and  salaried  auditor  of 
the  office  staff. 

4.  Five  signatures  are  required  on  vouchers  of  the 
West  Park  Board  and  seven  (sometimes  ten)  on  vouchers 
of  the  Lincoln  Park  Board.  Under  the  circumstances  the 
large  number  of  signatures  admits  of  evasion  of  responsi- 
bility instead  of  definitely  fixing  it.  Fewer  signatures  and 
more  definite  certificates  to  be  signed  would  be  better  evi- 
dence that  claims  should  be  paid.  The  South  Park  Board 
requires  only  two  signatures  on  its  vouchers  which,  for  the 
conditions,  appear  sufficient. 

5.  The  means  of  safeguarding  cash  in  the  West  Park 
offices  have  been  inadequate.  Cash  has  been  deposited  in 
bank  only  at  irregular  intervals. 

6.  The  Lincoln  Park  Board  pays  park  employees  in 
cash.  This  method  is  commended  to  the  other  two  Boards. 
The  South  and  Lincoln  Park  Boards  mail  checks  to  ven- 
dors and  contractors  doing  business  with  the  Boards.  It 
is  suggested  that  this  plan  be  adopted  also  by  the  West 


66  Chicago  Bureau  of  Public  Efficiency 

Park  Board,  which  pays  employees  by  check  and  compels 
payees  or  their  agents  to  call  at  the  park  offices  therefor. 

7.  The  changes  in  the  accounting  and  auditing  system 
of  the  West  and  Lincoln  Park  Boards,  suggested  in  the 
text  of  this  report,  in  order  to  produce  adequate  results, 
should  be  accompanied  by  changes  in  organization,  as  sug- 
gested in  the  last  chapter — "Need  for  Reorganization." 
This  is  especially  true  of  the  West  Park  office  force. 


PART  TWO 


I.    METHODS  OF  PURCHASE 

(EXCLUSIVE  OF  COAL) 


NEED  FOR  CENTRALIZATION 

The  organization  of  practically  every  large  private  corpora- 
tion includes  a  central  purchasing  bureau  through  which  all 
supplies  and  materials  used  by  the  corporation  are  purchased. 
For  example,  a  railroad  extending  from  Chicago  to  the  Pacific 
buys  all  of  its  supplies  and  materials  through  one  bureau  located 
in  Chicago.  A  large  proportion  of  the  purchases  for  a  group  of 
railroads  under  one  general  control  are  made  through  a  cen- 
tral purchasing  bureau  in  New  York. 

Centralized  purchasing  is  more  advantageous  than  decen- 
tralized purchasing  in  that  it  gives  to  the  central  bureau  a  much 
larger  buying  power.  Large  buying  power  makes  it  possible  to 
deal  direct  with  manufacturers,  in  fact,  manufacturers  will  bid 
against  one  another  for  large  orders.  Limited  buying  power 
on  the  other  hand  means  small  orders.  Manufacturers  are  not 
attracted  as  a  rule  by  small  orders  and  they  are  therefore  usually 
placed  with  middlemen  with  the  result  that  middlemen's  profits 
are  paid.  Even  when  small  orders  are  placed  with  manufac- 
turers, the  cost  is  nearly  always  higher  than  on  large  orders. 

Centralized  purchasing  also  makes  it  possible  to  maintain 
a  better  equipped  purchasing  plant.  Such  plants  are  usually 
headed  by  an  official  purchasing  agent  who  is  assisted  by  a  staff 
of  experienced  buyers  each  proficient  in  buying  some  one  or 
more  particular  kinds  of  supplies  or  materials.  By  devoting  their 
entire  attention  to  market  conditions,  such  buyers  are  often  able 
to  foresee  fluctuations  in  prices  and  by  governing  their  orders 
accordingly  are  able  to  save  large  sums  of  money.  The  office 
of  a  properly  equipped  purchasing  agent  contains  complete  files 
of  trade  catalogues,  special  trade  bulletins,  trade  journals,  cur- 
rent price-lists,  etc.,  all  carefully  indexed  for  ready  reference. 

67 


68  Chicago  Bureau  of  Public  Efficiency 

Central  purchasing  methods  also  facilitate  central  and  more 
complete  financial  control  which  in  itself  is  a  very  important 
factor. 

The  South,  West  and  Lincoln  Park  Boards  expend  over  a 
million  dollars  each  year  for  supplies  and  materials.  The  Boards 
of  the  several  small  park  districts  and  the  special  park  com- 
mission of  the  city  government  also  expend  a  considerable 
sum  each  year.  All  of  the  Boards  buy  practically  the  same 
kinds  of  commodities.  Logical  and  economical  organization  would 
therefore  provide  that  all  of  the  buying  should  be  done  through 
one  central  agency  and  thus  secure  the  advantages  of  the  com- 
bined buying  power  of  all  of  the  Boards.  The  buying  for  all 
departments  of  the  city  government  is  done  by  the  city  pur- 
chasing agent.  At  present  each  Park  Board  does  its  own  pur- 
chasing. Moreover,  although  the  three  large  Boards  have  each 
designated  an  employe  to  act  as  purchasing  agent,  authority  to 
purchase  has  neverthless  been  distributed  among  several  other 
employees  of  each  board. 

Purchases  have  often  been  made  by  the  superintendents 
of  the  South  and  Lincoln  Park  systems  and  also  by  the  Secre- 
tary and  President  of  the  West  Park  system.  Likewise  master 
mechanics,  general  foremen,  refectory  managers,  chauffeurs 
and  other  employees  have  made  purchases  aggregating  large 
amounts.  Owing  to  such  conditions,  the  buying  has  been  in 
comparatively  small  amounts,  which  fact  has  operated  against 
the  obtaining  of  lowest  prices.  A  large  proportion  of  the  pur- 
chases have  been  made  from  jobbers,  retailers  and  special  con- 
tractors, with  the  result  that  middlemen's  profits  have  been  paid 
thereon. 

The  South  and  West  Park  Boards  each  have  a  rule  that 
when  an  order  amounts  to  $500  or  more,  public  advertisement 
for  proposals  shall  be  made,  the  general  understanding  in  such 
cases  being  that  formally  written  contracts  shall  be  entered 
into.  The  Lincoln  Park  Board  has  a  similar  rule  but  with  a 
minimum  limit  of  $2,500.  Although  the  Park  Boards  have  made 
many  purchases  under  contracts,  an  examination  of  the  pur- 
chases made  during  a  12  month  period  shows  that  a  consider- 


The  Park  Governments  of  Chicago  69 

able  number  of  commodities  purchased  have  aggregated  thous- 
ands of  dollars  each  within  a  single  month  and  yet  public  ad- 
vertisement was  not  made  nor  formal  contracts  entered  into. 
The  large  amounts  have  usually  resulted  from  two  or  more  or- 
ders within  a  month. 

Purchases  amounting  to  less  than  $500,  (Lincoln  Park 
Board  $2,500),  are  supposed  to  be  made  by  open  market  order 
but  only  after  competitive  prices  have  been  secured.  The  forms 
of  purchase  requisitions  in  use  by  the  three  large  Park  Boards 
provide  spaces  wherein  the  names  of  the  dealers  from  whom  such 
competitive  prices  are  secured  are  supposed  to  be  entered  to- 
gether with  the  prices  submitted.  An  examination  of  the  files 
of  these  requisitions  of  the  West  Park  Board  disclosed  the  fact 
that  such  entries  have  rarely  been  made.  Although  it  was  ex- 
plained by  the  purchasing  agent  that  bids  had  been  obtained  over 
the  phone  and  noted  on  scrap  paper  which  was  subsequently 
destroyed,  the  fact  remains  that  there  is  nothing  of  record  to 
show  that  the  West  Park  Board  has  obtained  competitive  prices. 
An  examination  of  the  corresponding  files  of  the  South  Park 
Board  disclosed  the  fact  that  it  has  not  been  customary  to  re- 
ceive bids  from  more  than  one  or  two  dealers,  in  fact,  on  only 
about  20  per  cent,  of  the  requisitions  examined  had  bids  been 
obtained  from  more  than  two  dealers.  Of  1,133  Lincoln  Park 
requisitions  examined,  26  per  cent,  had  been  ordered  without 
securing  bids  from  any  firm  other  than  the  ones  to  whom  the 
orders  were  given.  Although  most  of  these  were  "repeat"  or- 
ders, the  Bureau  questions  the  correctness  of  the  assumption 
by  the  purchasing  agent  that  it  was  needless  to  again  request 
bids  from  any  other  dealers.  As  to  the  other  Lincoln  Park 
requisitions  examined,  1  per  cent,  showed  the  names  of  one 
other  bidder  with  prices  opposite,  47  per  cent  with  two  names, 
23  per  cent,  with  three  names  and  3  per  cent,  with  four  or  five 
bidders. 

Experience  elsewhere  with  similar  methods  has  shown  that 
where  bids  are  secured  by  telephone,  the  names  of  dealers  and 
fictitious  prices  have  often  been  entered  as  legitimate  bids  when 
in  fact  bids  were  never  requested  from  those  dealers.    When  bids 


70  Chicago  Bureau  of  Public  Efficiency 

are  requested  by  telephone,  opportunity  is  afforded  the  persons 
representing  the  Park  Boards  to  vary  their  requests  to  the  differ- 
ent dealers  with  respect  to  quantities,  description  of  commodity 
required  and  place  and  time  of  delivery,  so  as  to  affect  the  prices 
quoted  and  hence  enable  a  favored  dealer  to  appear  as  low  bid- 
der. Rarely  would  such  a  practice  become  apparent.  Much 
the  better  way  is  to  make  written  requests  and  secure  written 
bids.  The  latter  should  then  be  attached  to  the  requisition  or 
specification.  For  this  reason  also  it  is  better  to  buy  less  fre- 
quently and  in  large  quantities. 

The  purchase  of  larger  quantities  which  would  be  possible 
under  a  consolidation  of  the  park  governments  would  secure 
lower  shipping  rates.  This  would  apply  particularly  to  gravel, 
sand,  cement,  black  soil,  etc.,  which  are  items  of  large  cost  to  the 
Park  Boards  each  year. 

NEED  FOR  STANDARDIZATION 

Within  the  last  few  years,  commercial  organizations  have 
awakened  to  the  immense  savings  which  are  possible  by  standard- 
izing their  equipment,  materials  and  supplies.  Several  cities, 
notably  New  York,  are  now  engaged  in  similar  work  of  stan- 
dardization. An  examination  of  the  purchases  made  by  the 
Park  Boards  indicates  that  the  large  savings  which  would  be 
possible  if  the  purchasing  power  of  the  several  Boards  were  con- 
solidated would  be  largely  increased  by  a  standardization  of  the 
objects  of  purchase. 

The  accomplishment  of  this  result  would  include  a  careful 
study  by  officials  especially  authorized  for  that  purpose,  to  de- 
termine which  kind  or  grade  of  each  supply  and  material  and 
also  which  style  of  equipment  is  best  adapted  for  the  particular 
need  to  be  supplied.  In  determining  these  matters  the  officials 
would,  of  course,  consider  the  original  cost  as  well  as  the  rela- 
tive efficiency  of  the  final  results  obtained  therewith.  Having 
determined  upon  the  kinds,  grades,  styles,  etc.  best  adapted  for 
the  particular  uses,  they  would  thenceforth  be  recognized  as 
standard.     Adequate   descriptions   thereof   would   then   be   fur- 


The  Park  Governments  of  Chicago  71 

nished  to  manufacturers  when  purchases  became  necessary,  with 
a  request  for  lowest  prices.  It  would  usually  be  found  profit- 
able to  purchase  large  quantities. 

For  example,  instead  of  having  a  large  number  of  different 
shapes,  sizes  and  grades  of  shovels,  three  or  four  shapes  and 
sizes  would  be  adopted  as  standard,  each  shape  and  size  being 
selected  for  a  particular  use  for  which  it  was  proved  to  be 
most  efBcient.  Standard  specifications  for  these  shovels  would 
be  drawn  setting  forth  the  grade  of  steel,  kind  of  wood,  etc.  as 
well  as  the  shape,  weight  and  size  of  shovel  so  that  each  manu- 
facturer would  be  bidding  upon  exactly  the  same  thing.  No 
matter  which  manufacturers  secured  the  contracts  during  dif- 
ferent years,  under  such  a  plan  the  shovels  furnished  by  them 
would  all  conform  to  the  standard  specifications.  This  last  would 
be  insured  because :  ( 1 )  the  standard  specifications  would  af- 
ford an  ever  present  basis  for  testing  and  (2)  chemical  or  phys- 
ical tests,  or  both,  would  be  made  of  each  delivery  to  determine 
whether  or  not  it  conformed  to  the  specifications. 

There  has  been  not  only  a  complete  lack  of  standardization 
as  between  the  supplies,  material  and  equipment  purchased  by 
the  several  Park  Boards  but,  furthermore,  little  consideration  has 
been  given  to  the  matter  by  the  individual  Boards.  The  records 
of  each  Board  are  replete  with  illustrations  of  the  truth  of  this 
statement,  but  the  following  are  cited  as  typical : 

In  February,  1910,  the  South  Park  Board  bought  a  gross  of 
16-inch  gutter  brooms  and  also  a  gross  of  18-inch  gutter  brooms, 
the  price  of  the  former  being  $8  per  dozen  and  of  the  latter 
$9.50  per  dozen.  Under  a  system  of  standardization,  the  purchas- 
ing agent  would  have  known  what  size  of  gutter  broom  was  best 
adapted  for  the  work  and  his  authority  to  purchase  would  have 
been  limited  to  that  particular  size.  It  is  evident  that  if  the  $9.50 
brooms  were  better,  the  $8  brooms  should  not  have  been  pur- 
chased. If  the  latter  were  better,  then  $18  was  wasted  on  the 
gross  of  18-inch  brooms.  To  carry  this  illustration  further,  the 
West  Park  Board  soon  thereafter  purchased  a  gross  of  gutter 
brooms  from  another  firm  at  $8.25  per  dozen. 

The  Park  Boards  use  large  quantities  of  lubricating  oils. 


72  Chicago  Bureau  of  Public  Efficiency 

principally  automobile,  gas  engine  and  cylinder  oil.  Examina- 
tion by  the  Bureau  showed  that  several  different  grades  (at 
several  different  prices)  of  each  kind  of  oil  were  being  pur- 
chased. During  1910,  the  South  Park  Board  bought  two  grades 
of  automobile  oil,  one  at  25c  and  the  other  at  42.5c.  The  West 
and  Lincoln  Park  Boards  each  bought  one  grade  for  which  they 
paid  respectively  34c  and  35c.  The  South  Park  Board  paid 
35c  and  45c  for  gas  engine  oil,  while  the  other  two  boards  paid 
30c  and  18c  respectively.  Cylinder  oil  cost  the  South  Park 
Board  28c,  30c  and  40c,  while  the  other  two  boards  paid  42.5c 
and  34c  respectively.  It  is  evident  that  if  a  standard  had  been 
adopted  and  adhered  to  for  each  kind  of  oil,  a  considerable  sav- 
ing could  have  been  effected  thereon. 

The  Park  Boards  also  use  large  quantities  of  soap.  Exami- 
nation shows  that  different  grades,  varying  in  price,  are  pur- 
chased by  the  different  Boards  for  similar  purposes.  For  ex- 
ample, the  West  Park  Board  paid  $1,874  in  1910  for  liquid  soap 
at  45c  per  gallon,  while  the  South  Park  Board  bought  a  liquid 
soap  at  30c  per  gallon.  If  the  latter  is  as  satisfactory  for  the 
purpose  as  the  45c  soap,  then  the  West  Park  Board  wasted  over 
$600  during  1910  on  the  single  item  of  liquid  soap.  Standardiza- 
tion would  determine  such  questions. 

During  1910,  also,  the  South  Park  Board  purchased  timothy 
hay  almost  exclusively.  The  West  Park  Board  purchased  prairie 
hay,  and  the  Lincoln  Park  Board  purchased  both  kinds.  More- 
over, the  South  Park  Board  purchased  on  both  contract  and  open 
market  order  while  the  West  Park  Board  made  all  of  its  pur- 
chases in  the  open  market  and  the  Lincoln  Park  Board  pur- 
chased practically  all  of  its  hay  under  contract.  Similarly, 
different  grades  of  oats  were  purchased.  The  South  Park  Board 
bought  oats  both  in  the  open  market  and  under  contract,  while 
the  West  Park  Board  bought  exclusively  in  the  open  market 
and  the  Lincoln  Park  Board  under  contract.  Considering  the 
fact  that  forage  is  purchased  for  nearly  300  horses,  it  is  ap- 
parent that  large  savings  could  have  been  effected  if  hay  and 
oats  had  been  standardized  as  to  grade  and  method  of  purchase. 
It  cost  approximately  $40  per  horse  more  to  forage  the  horses 


The  Park  Governments  of  Chicago  73 

of  the  West  Park  Board  during  1910  than  the  horses  of  the 
South  or  Lincoln  Park  Boards. 

It  is  pointed  out  in  a  subsequent  chapter  that  the  West  Park 
Board  has  been  paying  $40  more  per  horse  for  horses  purchased 
than  either  of  the  other  two  Boards. 

Within  a  period  of  a  few  weeks  the  West  Park  Board 
bought  5,950  feet  of  one  inch  hose  from  five  different  firms. 
The  quantity  was  split  up  so  that  each  firm  secured  an  order  of 
from  950  feet  to  1,500  feet.  The  prices  ranged  from  13c  to 
15.5c.  About  the  same  time  the  South  Park  Board  bought  2,000 
feet  of  one  inch  hose  at  15c  per  foot  from  a  sixth  firm  and  the 
Lincoln  Park  Board  3,292  feet  from  a  seventh  firm  at  20c  per 
foot.  In  this  connection  it  is  also  interesting  to  note  that  the 
West  Park  Board  paid  56c  per  foot  for  2j^  inch  hose  about 
the  same  time  that  the  South  Park  Board  paid  47.5c  for  the  same 
size  hose. 

Widely  varying  prices  were  also  paid  by  the  several  boards 
for  trees  of  corresponding  kind  and  size.  Thousands  of  dol- 
lars are  spent  annually  for  trees  and  the  recent  establishment 
by  the  South  and  Lincoln  Park  Boards  of  nurseries  should  as- 
sist materially  in  reducing  the  future  cost  of  trees.  A  consolida- 
tion of  the  park  governments  would  give  to  the  West  Park 
district  as  well  as  the  smaller  districts  the  benefits  to  be  derived 
from  the  operation  of  the  nurseries  already  established. 

Large  quantities  of  lumber  are  used  each  year  by  the  several 
Boards,  most  of  which  has  been  purchased  on  the  open  market. 
For  example,  Lincoln  Park  voucher  No.  27,525,  August  31,  1911, 
for  $13,376  in  favor  of  Edward  Hines  Lumber  Company  was 
in  payment  for  lumber  all  of  which  was  purchased  in  the  open 
market  without  written  bids  or  written  contracts.  That  some 
of  the  single  purchases,  on  which  this  payment  was  based,  were 
very  large  is  evidenced  by  an  order  of  August  7  which  amounted 
to  $9,563.04.  Moreover,  the  order  was  for  only  one  kind  and 
grade   of   material,   as    follows : 

2,580  pieces  No.   1   Norway  Pine,  3  in.  x   12  in. -24  ft 
3,000  pieces  No.   1  Norway  Pine,  2  in.  x  12  in.-24  ft. 


329,760  bd.  ft.  at  $29.00  per  M $9,563.04 


74  Chicago  Bureau  of  Public  Efficiency 

The  prices  of  such  articles  as  nails  have  varied  according 
to  whether  they  were  purchased  from  manufacturers  or  jobbers. 

PURCHASE  OF  SOIL 

Sand,  gravel,  clay,  and  black  dirt  have  usually  been  pur- 
chased under  contract  by  the  Park  Boards.  Payments  by  the 
West  and  Lincoln  Park  Boards  have  often  been  based  on  the 
number  of  cubic  yards  as  determined  by  the  number  of  loads 
delivered.  The  capacity  of  the  wagons  in  cubic  feet  having  been 
determined,  inspectors  of  the  Park  Boards  have  reported  each 
day  the  number  of  loads  delivered  by  each  size  of  wagon.  This 
method  of  payment  has  not  sufficiently  protected  the  interests  of 
the  Park  Boards  or  taxpayers,  because — 

(1)  When  soil  is  loosened  and  shoveled  into  wagons  it  swells  in 
about  the  following  proportions : 

Black  dirt   (loam) 20  per  cent 

Clay    35  per  cent 

It  therefore  follows  that  when  payments  are  based  on  wagon 
measurements  larger  quantities  are  paid  for  than  are  received 
because  the  soil  when  in  wagons  is  in  a  non-compacted  condition. 
Payments  based  upon  such  measurements  exceed  the  payments  which 
should  be  made  in  about  the  same  proportion  that  soil  swells. 

(2)  Experience  has  shown  that  utmost  precautions  are  necessary 
by  municipal  governments  to  insure  fair  and  honest  inspection. 
Under  this  method  abundant  opportunity  is  afforded  for  collusion 
between  contractors  and  park  inspectors.  The  latter  may  easily 
report  an  excessive  number  of  loads  delivered.  They  may  allow 
contractors  to  count  short  loads  as  full  loads  or  to  dump  a  full 
load  in  two  places,  half  in  each  place,  and  thus  give  the  appearance 
of  having  delivered  two  loads. 

The  method  of  computing  deliveries  on  the  basis  of  the 
number  of  loads  delivered  was  recently  used  by  the  West  Park 
Board  in  connection  with  the  clay  and  black  dirt  purchased  for 
the  improvement  of  Franklin  boulevard.  There  were  also  some 
other  features  of  the  black  dirt  and  clay  contracts  for  that  im- 
provement which  are  open  to  criticism. 

On  March  28,  1911,  a  contract  was  awarded  for  furnish- 
ing and  spreading  black  soil  for  lawn  spaces  and  trees  on  Frank- 
lin boulevard  (section  VL  of  the  improvement)  and  also  a  con- 
tract for  clay  filling  and  grading  the  lawn  spaces  and  excavating 
tree  holes,  (section  VIII.).    The  contractor  found  that  there  was 


The  Park  Governments  of  Chicago  75 

a  large  quantity  of  black  soil  already  on  the  site.  He  reported 
this  fact  to  the  Board  and  a  supplementary  agreement  was  en- 
tered into  whereby  he  was  to  use  the  black  soil  found  on  the 
site.  For  this  soil  he  was  to  allow  the  Park  Board  45  cents  per 
cubic  yard  on  his  bid  of  74  cents.  The  price  of  handling  this 
black  soil  filling  was  thus  29  cents  per  cubic  yard.  The  actual 
cost  to  the  contractor  need  not  have  been  over  14  cents  per 
cubic  yard  and  he  was  therefore  allowed  a  profit  of  over  100 
per  cent. 

No  payments  had  yet  been  made  to  the  contractor  when  this 
was  written  (November  28,  1911)  but  the  contractor  had  used 
black  soil  found  on  the  site  as  a  filling  in  sections  where  clay 
should  have  been  used.  His  contract  price  for  clay  filling  is  15 
cents  per  cubic  yard  and  if  payment  is  made  him  for  all  black 
soil  removed  he  will  be  overpaid  14  cents  per  cubic  yard  on  the 
portion  which  should  have  been  filled  with  clay. 

Another  phase  of  this  undertaking  is  that  prior  to  advertis- 
ment  and  letting  of  the  contract  the  park  engineers  should  have 
ascertained  that  black  soil  already  existed  on  the  site. 

It  is  suggested  that  hereafter  payments  for  deliveries  of 
soil  be  based  only  on  calculations  made  by  the  park  engineers. 
By  running  "cross  sections"  where  the  filling  is  to  be  made  it 
is  possible  to  compute  accurately  the  quantity  of  soil  necessary 
for  filling. 

A  $100,000  ANNUAL  SAVING 

After  a  careful  study  of  the  present  methods  of  purchas- 
ing supplies  and  materials  for  park  purposes,  supplemented  by 
the  opinions  of  purchasing  agents  of  large  private  corporations 
in  Chicago,  the  Bureau  concludes  that  if  all  the  Park  Boards  were 
consolidated  with  the  city  government  the  additional  buying 
power  thus  given  the  city  purchasing  agent,  if  supplemented  by 
proper  standardization  and  efficient  methods  of  purchase  and  in- 
spection, would  enable  an  average  saving  of  not  less  than  10 
per  cent,  to  be  made  each  year  on  all  purchases  of  supplies  and 
materials  now  made  by  the  Park  Boards.    Since  the  several  Boards 


76  Chicago  Bureau  of  Public  Efficiency 

now  expend  approximately  $1,000,000  for  such  commodities,  at 
least  $100,000  might  be  saved  annually  in  this  way.  It  is  prob- 
able that  the  amount  saved  would  exceed  this  sum. 


II.    PURCHASE  OF  COAL 

The  purchase  of  coal  constitutes  one  of  the  largest  items  of 
supply  expense  incurred  by  the  Park  Boards.  The  expendi- 
tures for  this  purpose  for  the  year  ending  June  30,  1911,  were 
as  follows: 

South  Park  Commissioners $49,971.87 

West    Chicago    Park    Commissioners 15,831.69 

Lincoln   Park   Commissioners 36,685.17 

Total    $102,488.73 

Coal  is  used  by  the  South  Park  Board  for  heating  purposes 
and  production  of  power  for  lighting  buildings,  parks  and  boule- 
vards and  for  operating  machinery  in  the  shops.  It  is  used  by 
the  West  Park  Board  for  heating  purposes  only,  and  by  the 
Lincoln  Park  Board  for  heating  purposes  and  the  production 
of  steam  power  for  the  dredge,  tug  boats,  derricks,  etc.,  in  con- 
nection with  the  park  extension  work. 

The  Bureau's  investigation  has  been  confined  to  analyses 
of  the  specifications  under  which  the  coal  has  been  purchased, 
examination  of  the  physical  equipment  of  the  lighting  and  heat- 
ing plants,  and  interviews  with  the  superintendents  of  the  parks 
in  regard  to  the  purposes  for  which  the  various  kinds  of  coal 
purchased  were  used  and  the  methods  employed  in  weighing, 
sampling  and  testing.  For  many  years  the  South  Park  Board 
has  purchased  coal  under  specifications.  The  West  Park  Board, 
however,  purchased  coal  under  specifications  in  1910  for  the  first 
time.  For  the  five  years  preceding,  this  Board  had  purchased 
coal  without  any  contract  whatever.  The  Lincoln  Park  Board 
first  used  specifications  in  1908.  The  specifications  of  the  South 
and  West  Park  Boards  which  the  Bureau  has  analyzed  are  those 
under  which  contracts  were  let  for  the  year  ending  June  30,  1912. 
These  specifications  as  a  whole  are  good.  Coal  is  purchased  and 
paid   for  upon  a  basis  of  its  heat  value,   the  contracts  being 


The  Park  Governments  of  Chicago  77 

awarded  to  the  bidder  who  guarantees  the  greatest  number  of 
British  Thermal  Units  for  one  cent. 

The  specifications  under  which  contracts  were  let  by  the 
Lincoln  Park  Board  for  the  year  1909-10  were  superior  to  those 
of  1910-11.  Under  the  former,  purchases  were  made  on  the 
British  Thermal  Unit  basis,  and  provision  was  made  to  have 
the  coal  tested  by  an  engineering  firm ;  under  the  latter,  pur- 
chases were  not  made  on  the  British  Thermal  Unit  basis,  nor 
was  provision  made  for  testing.  Instead  of  moving  forward, 
the  Lincoln  Park  Board  took  a  decided  step  backward.  At  the 
time  of  inquiry,  this  Board  had  not  yet  let  contracts  for  the  year 
1911-12.  The  specifications  analyzed,  therefore,  were  those 
under  which  contracts  were  let  for  the  year  ending  April  30, 
1911. 

New  contracts  are  not  let  by  any  of  the  Park  Boards  promptly 
upon  expiration  of  the  old.  Contracts  of  the  South  Park  and 
West  Park  Boards  expired  June  30,  1911,  and  new  contracts 
were  not  let  until  July  19  and  25,  respectively.  Contracts  of 
the  Lincoln  Park  Board  expired  April  30,  1911,  and  bids  for 
new  contracts  were  not  opened  until  September,  1911.  In  con- 
nection with  the  awarding  of  contracts  for  bituminous  coal,  the 
Bureau  emphasizes  the  fact  that  under  normal  conditions  the 
first  of  July  is  the  best  time  to  let  contracts  in  order  to  obtain 
the  benefit  of  lowest  prices. 

DEFECTS  IN  SPECIFICATIONS 

An  analysis  of  the  specifications  reveals  the  following  de- 
fects : 

South  Park  Commissioners: 

1.  Facilities  for  weighing  are  not  definitely  shown. 

2.  Storage  capacity  of  bins  at  delivery  stations  is  not  given. 

3.  Contractors  are  not  required  to  furnish  bills  of  lading 
unless  requested. 

4.  The  penalty  imposed  for  delivery  of  coal  containing  an 
excess  of  fine  coal  is  not  sufficient  to  cover  the  difference  in  the 
value  of  the  coal. 


78  Chicago  Bureau  of  Public  Efficiency 

5.  No  provision  is  made  for  occasional  screening  tests  to  see 
that  coal  conforms  with  the  specifications  as  to  size.  The  pen- 
alty clause  is  practically  rendered  inoperative  by  the  lack  of 
screening  tests. 

6.  The  number  of  samples  which  shall  be  taken  and  the 
number  of  tests  which  shall  be  made  are  not  stated. 

West  Chicago  Park  Commissioners: 

1.  The  bond  required  (equal  in  amount  to  the  estimated 
value  of  the  contract)  is  too  large. 

2.  Facilities  for  weighing  are  not  definitely  shown.  It 
is  not  stated  that  coal  shall  be  weighed  by  representatives  of  the 
Board  and  that  their  weights  shall  be  used  as  a  basis  of  payment. 

3.  Storage  capacity  of  bins  at  delivery  stations  is  not  given. 

4.  Contractors  are  not  required  to  furnish  bills  of  lading, 

5.  No  provision  is  made  for  occasional  screening  tests  to 
see  that  coal  conforms  with  the  specifications  as  to  size. 

6.  The  number  of  samples  which  shall  be  taken  and  the 
number  of  tests  which  shall  be  made  are  not  stated. 

7.  Separate  bids  are  not  requested  for  the  dififerent  parks, 
and  contracts  are  made  for  the  total  quantity  of  each  kind 
of  coal,  without  regard  to  places  of  delivery. 

Lincoln  Park  Commissioners: 

1.  The  bond  required  (one-half  of  the  aggregate  amount 
of  the  contract)  is  too  large. 

2.  The  locations  of  scales  on  which  coal  is  to  be  weighed 
for  the  various  delivery  stations  are  not  given. 

3.  Delivery  stations  where  contractors  are  expected  to  de- 
liver coal  are  not  listed. 

4.  Contractors  are  not  required  to  furnish  bills  of  lading. 

5.  Descriptions  of  the  coal  wanted  are  meagre  and  in- 
definite. 

6.  Contractors  are  required  to  hold  an  unreasonably  large 
amount  of  coal  (30  per  cent  of  the  contract)  in  storage  at  all 
times  for  protection  against  strikes. 

7.  The  evaporation  method  of  testing,  which  is  unreliable 


The  Park  Governments  of  Chicago  79 

and  inaccurate,  is  the  one  provided  for  in  the  specifications. 

8.  Methods  to  be  followed  in  selecting  samples  for  testing 
purposes  are  not  mentioned. 

9.  Separate  bids  are  not  requested  for  the  different  parks; 
contracts  are  made  for  the  total  quantity  of  each  kind  of  coal, 
without  regard  to  places  of  delivery. 

10.  The  specifications  as  a  whole  are  loosely  drawn,  little 
care  appearing  to  have  been  exercised  in  their  preparation. 

METHODS  ACTUALLY  EMPLOYED  IN  WEIGHING, 
SAMPLING  AND  TESTING 

South  Park  Commissioners. 

Although  several  cars  of  coal  were  rejected  last  year  by  the 
heating  engineer  on  his  own  inspection,  no  screening  tests  were 
made  either  by  him  or  the  engineering  firm  employed. 

West  Chicago  Park  Commissioners. 

There  is  only  one  scale  throughout  the  entire  west  park  sys- 
tem on  which  coal  may  be  weighed.  This  is  located  at  Garfield 
Park,  Coal  delivered  to  all  other  parks,  amounting  to  approxi- 
mately 1,600  tons  per  annum,  is  paid  for  at  contractor's  weights. 
Although  the  specifications  give  the  sizes  of  the  different  kinds  of 
coal  and  the  percentages  of  fine  coal  which  will  be  accepted,  and 
provide  for  penalties  when  coal  is  delivered  containing  an  excess 
of  fine  coal,  no  screening  tests  have  been  made  to  see  that  coal 
delivered  was  in  accordance  with  the   specifications. 

Lincoln  Park  Commissioners. 

There  is  only  one  scale  throughout  the  Lincoln  Park  system 
on  which  coal  may  be  weighed.  This  is  located  at  Lincoln  Park. 
Coal  delivered  to  all  other  parks,  amounting  to  approximately 
750  tons  per  annum,  is  paid  for  at  contractor's  weights.  In  addi- 
tion to  the  3322  tons  of  coal  used  last  year  in  the  various  parks, 
the  Lincoln  Park  Board  used  6616  tons  in  the  park  extension 
work.  Of  this  amount,  138  tons  were  delivered  to  the  shipyard 
at  Lincoln  Park  and  reweighed  and  paid  for  according  to  the 


80  Chicago  Bureau  of  Public  Efficiency 

park  weights.  The  balance,  6,478  tons,  was  delivered  on  board 
scows  and  tugboats  at  the  contractor's  dock  in  the  Chicago  River, 
There  are  no  facilities  at  the  dock  for  weighing  the  coal,  and 
it  was  paid  for  on  a  basis  of  the  carload  weights,  as  given  by  the 
contractor.  They  are  supposed  to  be  mine  weights,  but  the  con- 
tractor is  not  required  to  furnish  bills  of  lading  or  other  railroad 
records  for  the  purpose  of  verifying  the  weights.  Of  the  6,478 
tons  of  coal  delivered  at  the  dock,  approximately  5,000  tons  were 
delivered  to  the  scow  for  the  dredge.  The  method  of  receiving 
this  coal  is  open  to  serious  criticism.  When  coal  is  needed  for 
the  dredge,  the  scow  is  taken  to  the  dock  by  the  captain  of  the 
tug.  It  is  left  there  for  periods  of  from  one-half  to  three  or  four 
days.  The  coal  is  loaded  direct  from  the  cars  to  the  scow.  The 
tug  captain  does  not  always  see  the  coal  loaded.  When  the  tug 
returns  for  the  scow,  the  captain  is  given  two  coal  tickets,  show- 
ing the  numbers,  initials,  and  weights  of  the  cars  from  which  the 
coal  was  unloaded.  He  signs  these,  leaves  one  with  the  contrac- 
tor, and  takes  the  other  to  the  shipyard,  where  it  is  kept  on  file 
for  checking  purposes.  The  capacity  of  the  scow  is  about  four 
carloads,  and  three  or  four  carloads  are  generally  taken  on  at  each 
coaling.  Although,  from  an  inspection  of  the  pile  of  coal  on  the 
scow  an  estimate  might  be  accurately  made  as  to  the  number 
of  cars  of  coal,  it  would  be  impossible  to  tell  whether  all  the 
coal  had  been  transferred  to  the  scow  unless  someone  had  actually 
seen  the  cars  unloaded. 

Although  the  specifications  state  that  evaporation  tests  shall 
be  made  at  "frequent  intervals,"  and  provide  for  penalties  when 
the  tests  show  that  coal  of  an  inferior  quality  has  been  delivered, 
no  samples  were  taken  and  no  tests — either  evaporation,  chemical 
analysis  or  screening — were  made.  The  prices  paid  in  all  instances 
were  the  per  ton  prices  of  the  contracts.  While  the  size  of  the 
coal  delivered  has  at  times  justified  the  entering  of  complaints, 
no  rejections  have  been  made. 

SAVINGS  POSSIBLE  BY  PROPER  SELECTION  OF  COALS 

The  table  below  shows  the  kinds  of  coal  used  by  each  of  the 
Park  Boards  for  heating  the  various  buildings  for  the  contract 


The  Park  Governments  of  Chicago  81 

year   1910-11,  the  approximate  number  of  tons  used,  and  the 
contract  prices  per  ton: 

Approxi- 
mate Num-  Contract 
Purpose  for  Which   Used.        Kind  of  Coal                    ber  of  Prices 

Tons  Used.  Per  Ton. 
Power  Houses — heating  buildings. 

South  Park Indiana    Screenings 6000  $2,345 

West  Park Illinois    Screenings 4200  2.20 

Lincoln  Park Pocahontas,    Mine   Run    940  4.00 

Individual  Heating  Plants — heating   buildings  similar   to 
those  heated  by  power  houses. 

South  Park Anthracite,    Range    70  7.00 

West  Park Anthracite,   Range    160  7.25 

Lincoln  Park Pochontas,  Mine  Run  1375  4.19* 

Individual  Heating  Plants — heating  pavilions,  natatoriums, 
fieldhouses,  etc.,  in  small  parks. 
South  Park — 

6  parks Anthracite,   Buckwheat 2920  4.40 

3  parks Anthracite,   Buckwheat 1 100  3.899 

1  park Pocahontas,    Mine    Run    700  4.50 

West  Park— 

1  park Anthracite,  Range 70  7.25 

5  parks Pocahontas,   Mine   Run    1065  4.00 

Lincoln  Park — 

1  park Anthracite,  Egg 50  7.00 

3  parks Pocahontas,   Mine   Run    550  4.19* 

It  will  be  noted  from  the  above  table  that,  while  the  South 
Park  Board  used  anthracite  buckwheat  which  cost  $4.40  per  ton 
for  heating  the  buildings  in  six  small  parks,  the  West  and  the 
Lincoln  Park  Boards  used  Pocahontas  mine  run  for  this  purpose 
at  nearly  all  of  their  small  parks.  These  two  Boards  paid  only 
$4  and  $4.19  per  ton  respectively.  The  South  Park  Board  also 
used  Pocahontas  mine  run  at  one  of  their  small  parks,  for  which 
they  paid  $4.50  per  ton.  Although  this  price  is  considerably 
higher  than  that  paid  by  the  other  Park  Boards,  if  Pocahontas 
instead  of  anthracite  had  been  used  in  the  six  small  parks  and 
paid  for  at  the  rate  of  $4.50  per  ton,  it  would  have  been  much 
cheaper,  as  the  former  has  a  heat  value  about  16  per  cent  in 
excess  of  the  anthracite.  The  South  Park  Board  used  for  this 
purpose  approximately  2,920  tons  of  anthracite  buckwheat,  which 
cost  them,  at  $4.40  per  ton,  $12,848.    If  they  had  used  Pocahon- 

*Average  price  paid. 


82  Chicago  Bureau  of  Public  Efficiency 

tas,  they  could  have  secured  the  same  number  of  heat  units  as 
were  contained  in  the  2,920  tons  of  buckwheat  for  $10,764.54. 
By  their  failure  to  do  so  the  South  Park  Board  lost  approxi- 
mately $2,000.  In  explanation  of  the  use  of  anthracite  buck- 
wheat instead  of  Pocahontas  mine  run,  the  engineer  stated  that 
the  only  reason  is  that  the  former  makes  less  smoke.  However, 
as  Pocahontas  itself  is  considered  a  high-grade  smokeless  coal, 
and  as  it  has  been  decided  to  use  it  in  these  small  parks  during 
the  coming  year,  the  explanation  is  unsatisfactory. 

An  investigation  of  the  physical  equipment  of  the  various 
plants  convinces  the  Bureau  that  other  losses  are  being  incurred 
by  the  Park  Boards  through  the  use  of  higher  priced  coal  than  is 
required.    We  suggest  the  following  substitutions : 

That  the  South  Park  Board  substitute  Pocahontas  mine  run 
for  anthracite  range  at  McKinley  Park,  and  Illinois  or  Indiana 
lump  for  anthracite  buckwheat  and  Pocahontas  mine  run  and 
lump  at  the  remaining  small  parks  which  have  heating  plants. 

That  the  West  Park  Board  substitute  Pocahontas  mine  run 
for  anthracite  range  at  Union,  Douglas  and  Garfield  Parks. 

That  the  Lincoln  Park  Board  substitute  Illinois  or  Indiana 
lump  for  Pocahontas  mine  run  at  Lincoln  Park  for  heating  the 
propagating  houses,  and  at  the  shipyard  for  the  use  of  the  der- 
ricks, pile  drivers,  sand  pump  and  scow;  and  Pocahontas  mine 
run  for  anthracite  egg  at  the  hot-water  heating  plants  in  Seward, 
Stanton  and  Hamlin  Parks. 

If  the  above  suggestions  had  been  in  effect,  the  approximate 
saving  to  each  Board  on  last  year's  contracts  (as  is  shown  in 
Table  B  of  the  Appendix)  would  have  been  as  follows : 

South  Park  $6,200 

West  Park    700 

Lincoln  Park   1.500 

Total   $8,400 

In  order  that  the  South  Park  Board  may  burn  the  Illinois  or 
Indiana  coal  without  making  an  objectionable  amount  of  smoke, 
it  will  be  necessary  to  change  the  furnace  settings  at  all  of  the 
small  parks,  with  the  exception  of  Marquette,  so  as  to  furnish 


The  Park  Governments  of  Chicago  83 

more  air  for  combustion.     This  can  be  done  at  an  expense  of 
approximately  $150  for  each  furnace. 

On  account  of  the  type  of  furnaces  at  Humboldt  and  Small 
Parks  1,  2  and  3,  the  West  Park  Board  cannot  use  Illinois  or 
Indiana  coal  without  making  considerable  smoke,  and  they  are 
forced  to  purchase  high-priced  smokeless  coal  from  West  Vir- 
ginia fields.  At  Seward,  Stanton  and  Hamlin  Parks,  the  Lincoln 
Park  Board  for  the  same  reason  used  Pocahontas  and  anthracite. 
While  the  saving  which  could  be  effected  by  changing  the  equip- 
ment would  not  be  sufficient  to  warrant  such  action,  the  Bureau 
recommends  that  when  new  buildings  are  constructed,  furnaces  of 
a  smokeless  type  be  installed,  in  which  Illinois  or  Indiana  coal 
can  be  burned.  If  a  central  heating  plant  were  installed  at  Lin- 
coln Park  (instead  of  having  four  plants  as  at  present),  and  if 
it  were  equipped  to  burn  Illinois  and  Indiana  coal — the  saving 
on  the  coal  bills  would  amount  to  several  thousand  dollars 
annually. 

III.  SMALL  PARKS  AND  PLAYGROUNDS 

The  small  parks  and  playgrounds  constitute  the  feature  of 
park  development  in  Chicago  that  has  attracted  the  most  atten- 
tion and  praise  from  the  outside  world.  The  initiation  of  the 
small  park  and  playground  movement  is  due  primarily  to  the 
city  council  of  Chicago.  That  body  in  1899  provided  for  the 
creation  of  a  small  park  commission  to  make  a  study  of  the 
need  of  the  community  for  additional  small  park  and  playground 
facilities.  The  report  outlined  a  program  of  improvements  which 
the  city  was  unable  to  undertake  because  of  its  straightened 
financial  condition.  However,  the  city  has  done  what  it  could 
in  this  line.  The  small  park  and  playground  and  bathing  beach 
facilities  which  the  city,  through  its  special  park  commission, 
has  furnished  to  the  public,  have  been  creditable  in  view  of  the 
comparatively  small  amounts  of  money  available  for  the  purpose. 

Legislative  authority  having  been  secured  for  the  commis- 
sioners of  the  independent  park  boards  to  issue  bonds  for  the 
purchase  of  suitable  sites,  the  further  development  of  a  small 
park  and  playground  system  was  begun  by  these  boards.    Under 


84  Chicago  Bureau  of  Public  Efficiency 

the  presidency  of  Mr.  Henry  G.  Foreman,  the  Board  of  South 
Park  Commissioners  undertook  the  development  in  their  terri- 
tory on  an  extensive  scale  of  small  parks  and  playgrounds.  The 
first  plant  was  put  in  operation  by  that  Board  in  1905.  The 
social  value  of  these  facilities  to  the  community  has  been  very 
great.  The  West  Chicago  Park  Commissioners  and  the  Lincoln 
Park  Commissioners  have  followed  the  example  of  the  South 
Park  Commissioners  in  this  respect,  but  have  not  carried  the 
development  so  far. 

SOUTH  PARK  COMMISSIONERS 

The  South  Park  Board  owns  seventeen  small  park  sites,  ten 
of  which  are  in  full  operation  and  two  partially  improved. 

A  general  director  of  fieldhouses  and  playgrounds,  subor- 
dinate only  to  the  general  superintendent  of  parks,  and  the  Park 
Board,  has  supervision  over  the  physical,  intellectual  and  social 
activities  of  all  the  small  parks  and  playgrounds.  This  work  at 
each  small  park  is  in  the  immediate  charge  of  a  fieldhouse  direc- 
tor. Originally  the  fieldhouse  director's  control  extended  over 
the  physical  instructors  only,  the  maintenance  and  operation  of 
the  buildings,  pools,  and  playgrounds  being  in  charge  of  a  build- 
ing foreman  who  reported  to  a  general  building  foreman.  The 
latter's  authority  was  independent  of  the  general  director.  Con- 
fusion of  authority  in  directing  the  uses  of  the  equipment,  with 
the  attendant  waste  and  public  dissatisfaction,  resulted,  about  two 
years  ago,  in  subordinating  the  general  building  foreman  and 
his  men  to  the  general  director,  reserving,  however,  to  the  general 
building  foreman  the  selection  of  building  janitors  and  pool 
attendants.  As  an  example  of  the  inefficiency  of  this  arrange- 
ment, a  test  of  the  qualifications  of  the  lifesavers,  subsequent  to 
a  drowning  accident,  developed  the  fact  that  one  man  could  not 
swim  and  only  three  out  of  thirty-five  knew  how  to  rescue  a 
drowning  person ;  and,  further,  that  they  were  on  duty  fully 
dressed  in  white  duck  uniforms,  a  serious  hindrance  in  the  water. 
The  accident  resulted  in  a  reorganization  of  the  life-saving  staff, 
including  the  adoption  of  appropriate  dress  and  daily  drill.  These 
are  steps  in  the  right  direction,  but  it  is  suggested  that  the  change 


The  Park  Governments  of  Chicago  85 

be  carried  to  its  logical  and  practicable  conclusion  by  dispensing 
with  the  services  of  the  general  building  foreman  and  ten  building 
foremen.  They  are  unnecessary  and  their  dismissal  would  save 
$11,850  annually. 

The  policing  of  the  small  parks  is  open  to  the  same  criticism 
as  to  independent  authority  and  the  resulting  friction.  Ofificers 
are  assigned  to  the  small  parks  by  the  general  superintendent, 
regardless  of  their  fitness  for  the  peculiar  responsibilities  found 
there,  and  they  are  wholly  independent  of  the  general  direc- 
tor and  his  local  directors.  Instances  are  reported  where  inefh- 
cient  officers  have  been  intimidated  and  their  authority  ignored 
by  young  roughs ;  also,  instances  where  immorality  has  resulted 
from  a  failure  to  properly  patrol  the  grounds,  and  others  of 
absence  from  duty,  but  no  action  has  been  taken  upon  reports 
made  to  the  general  superintendent.  It  is  suggested  that  the 
general  director  of  fieldhouses  and  playgrounds  should  have  the 
authority  to  designate  the  officers'  posts  and  prescribe  the  special 
regulations  to  be  enforced  by  the  police.  Responsibility  for  the 
proper  conduct  of  the  small  park  activities  rests  upon  him,  and 
his  requests  for  the  transfer  of  undesirable  or  incompetent  offi- 
cials should  be  honored  upon  a  showing  of  fact. 

WEST  CHICAGO  PARK  COMMISSIONERS 

The  West  Park  Board  operates  three  small  parks,  each 
equipped  with  fieldhouse,  playground,  and  swimming  pool ;  also  a 
playground  and  swimming  pool  in  Douglas  Park.  Each  of  the 
four  plants  is  operated  independently,  under  managers  appointed 
by  the  commissioners.  There  is  no  central  direction  of  the  activi- 
ties, the  success  of  each  park  depending  upon  the  individual 
capabilities  of  the  managers.  The  plan  of  operation  is  com- 
mendable, however,  in  that  each  manager  has  control  of  all  the 
park  facilities,  including  care  of  buildings  and  policing. 

This  Board  is  paying  a  monthly  rental  of  $4  each  for  three 
pianos  in  each  of  the  three  small  parks,  and  also  one  each  in 
Garfield  and  Douglas  Parks.  The  suggestion  is  made  that  it 
would  be  better  economy  to  buy  pianos  for  these  parks.  The 
rental  now  paid  would  in  three  years  buy  as  many  new  instru- 


86  Chicago  Bureau  of  Public  Efficiency 

ments.  Nine  pianos,  especially  adapted  for  hard  usage,  were 
purchased  by  the  South  Parks  in  1910  at  a  cost  of  approximately 
$140  each. 

LINCOLN  PARK  COMMISSIONERS 

The  Lincoln  Park  Board  operates  five  small  parks,  the  two 
most  complete  being  opened  this  last  summer.  Two  of  the  others 
are  not  yet  equipped  except  that  one  has  outdoor  facilities  and 
shelter.  No  attendance  figures  for  1910  had  yet  been  com- 
piled, September  1,  1911.  Under  the  former  superintendent, 
the  director  of  playgrounds  was  ignored  in  the  planning 
of  equipment,  and  his  authority  destroyed  by  the  direct  opposi- 
tion of  the  superintendent.  That  policy  has  been  corrected,  how- 
ever, by  the  present  superintendent,  with  the  result  that  the  direc- 
tor of  playgrounds  is  now  developing  practically  a  new  depart- 
ment in  the  Lincoln  Park  system. 

IN  GENERAL 

The  small  park  and  playground  facilities,  attendance,  and 
cost  of  operation  in  each  district,  and  also  of  the  Special 
Park  Commission  of  the  city  government,  are  set  forth  in  detail 
in  Table  E  of  the  Appendix.  With  the  exception  of  Lincoln 
Park,  the  tables  are  based  on  the  1910  operations.  A  summary 
thereof  is  shown  below : 

Special 
South  West  Lincoln      Park 

Commission 

Area,    square    miles 93  36  13  

Total  population    777,457         902,768         358,429  

Child    population     275,300         349,660         117,865  

Number  of   fieldhouses 10  3  1  3 

Number  of  playgrounds 11  4  2  16 

Number  of  swimming  pools  or 

beaches    12  4  1  2 

Uses  of  facilities  5,240.856      2,306,541         411,226      3,144,197 

Cost  of  operation $448,863       $118,631         $33,032         $46,352 

It  is  to  be  noted  that  the  jurisdiction  of  the  Special  Park  Commission 
extends  over  the  whole  city  of  Chicago. 

The  last  school  census  was  taken  by  wards,  the  boundaries 
of  which  do  not  coincide  with  park  district  boundaries.     The 


The  Park  Governments  of  Chicago  87 

child  population  shown  above  is  therefore  necessarily  an  estimate 
in  "split"  wards,  but  is  based  on  the  existing  ratio  of  the  total 
population  thereof,  as  shown  by  the  United  States  census.  The 
1910  attendance  figures  for  Lincoln  Park  not  being  available,  the 
Bureau  has  used  all  1909  figures  for  that  system,  although  this 
somewhat  destroys  the  value  of  the  comparison.  It  is  to  be  noted 
also  that  in  addition  to  the  number  shown  above  the  Lincoln  Park 
Board  has  opened  two  combined  fieldhouses,  playgrounds,  and 
swimming  pools  during  1911;  also  that  the  West  Park  Board 
during  1910  secured  authority  for  a  million-dollar  bond  issue  for 
the  establishment  of  additional  small  parks  and  playgrounds. 

Even  with  such  added  facilities  on  the  North  and  West  sides, 
the  unequal  distribution  thereof  still  remains  apparent  and  is  a 
potent  argument  for  park  consolidation.  Under  consolidation, 
these  facilities  might  be  established  wherever  needed,  and  one 
capable  stafif,  working  under  central  direction,  should  secure 
results  not  now  possible. 

IV.    SPECIAL  PRIVILEGES 


SOUTH  PARK  COMMISSIONERS 

The  South  Park  Board  has  pursued  the  general  policy  of  not 
granting  special  concessions  or  privileges  to  anyone.  The  refec- 
tories, lunch  rooms  and  boats  in  the  parks  are  all  operated  by  the 
Board  for  the  benefit  of  the  public  at  large,  as  described  hereafter 
in  this  report.  Private  lockers  for  the  use  of  golf  players,  and 
moorings  for  the  use  of  those  owning  motor  or  sail  boats  are 
provided  free  on  request.  Though  the  use  of  Grant  Park,  some- 
times called  "Chicago's  front  door  yard,"  has  been  granted  with- 
out charge  to  local  civic  and  commercial  bodies  for  staging  large 
spectacles  of  public  interest,  it  has  been  done  only  on  condition 
that  a  large  proportion  of  the  seating  capacity  be  available  to  the 
public  free  of  charge. 

No  fees  are  charged  for  issuing  permits  for  street  openings 
or  for  other  purposes.  A  number  of  special  privileges  have  been 
granted,  however,  to  property  holders  on  Michigan  and  Jackson 
boulevards  for  the  construction  of    sub-sidewalk    vaults.     No 


88  Chicago  Bureau  of  Public  Efficiency 

charge  has  been  exacted  therefor.  These  streets  were  received 
from  the  city,  and  the  latter  is  now  collecting  an  annual  rental 
from  sub-sidewalk  vaults  on  several  other  streets.  The  use  of 
these  vaults  can  be  of  benefit  only  to  the  persons  owning  the  abut- 
ting property,  and  in  this  respect  it  seems  proper  to  make  a  charge 
for  the  privilege. 

The  yacht  club  houses  on  the  water  front  of  Grant  Park  are 
there  by  sufferance  of  the  United  States  Government.  The  only 
charge  made  by  the  South  Park  Board  for  concessions  is  that 
of  $15  to  $25  a  month  for  each  lake  boat  landing  passengers  in 
Grant  Park,  and  $10  a  month  for  the  similar  privilege  at  Calumet 
Park. 

WEST  CHICAGO  PARK  COMMISSIONERS 

The  West  Park  Board  has  granted  special  concessions,  but 
only  to  a  limited  extent.  No  fee  is  charged  for  issuing  street 
opening  or  other  permits.  All  of  the  boats  and  some  of  the 
refectories  are  operated  by  the  Board,  and  free  lockers  are  avail- 
able in  the  golf  shelter.  The  privilege  of  selling  refreshments  in 
Humboldt  Park,  however,  has  been  granted  as  a  concession.  Com- 
paring the  service  rendered  by  the  concessionaire  in  that  park 
with  the  opportunity  offered,  the  service  is  inadequate ;  and  com- 
paring the  amount  received  from  the  concessionaire  for  the  privi- 
leges enjoyed  with  the  value  thereof,  the  amount  received  is  also 
inadequate.  This  concession  is  further  discussed  in  this  report 
under  "Refectories  and  Lunch  Rooms,"  page  93. 

The  privilege  of  keeping  a  piano  in  the  Assembly  Hall  in 
Garfield  Park  and  also  in  the  hall  in  Douglas  Park  and  of 
charging  $3  an  evening  for  the  use  thereof  was  enjoyed  free 
prior  to  January,  1911,  by  a  man  named  Beardsley.  It  was  not 
even  necessary  for  him  to  collect  the  rental.  One  of  the  employees 
in  the  Garfield  Park  Hall  informed  a  Bureau  representative  that 
she  often  collected  the  $3  fee  for  Beardsley.  The  arrangement 
of  Beardsley's  to  keep  pianos  in  these  halls  was  similar  to  that 
of  Kinsella's  in  the  Humboldt  Park  Assembly  Hall,  hereinafter 
described.  In  December,  1910,  a  Bureau  representative  made 
several  inquiries  about  these  pianos,  and  the  next  month  they 
were  ordered  out  by  the  park  authorities  and  pianos  were  installed 


The  Park  Governments  of  Chicago  89 

in  both  parks  by  the  Park  Board  for  the  free  use  of  tTie  public. 
During  1910  the  Assembly  Hall  in  Garfield  Park  was  used  for 
dances  and  parties  254  times,  and  that  in  Douglas  Park  110 
times.  Deducting  the  season's  rental  which  Beardsley  may  have 
paid  the  owner  of  these  pianos,  they  nevertheless  earned  over 
$1,000  net  in  1910,  of  which  the  Park  Board  received  nothing. 

LINCOLN  PARK  COMMISSIONERS 

The  Lincoln  Park  Board  operates  its  own  boats  on  the  park 
ponds,  and  provides  free  moorings  for  small  lake  boats  but, 
except  for  a  lunch  room  in  Seward  Park,  now  closed,  follows  a 
different  policy  as  to  other  privileges.  All  refreshment  privileges 
have  been  let  to  one  man  for  several  years. 

The  exclusive  privilege  of  renting  pony  carts,  saddle  ponies, 
park  phaetons  and  horseless  vehicles  was  granted  to  Charles  E. 
Adams  for  a  period  of  four  years  from  May  1,  1909,  at  $1,800 
a  year. 

A  fee  is  exacted  from  lake  vessels  landing  passengers  at  the 
park.  It  is  a  season  rate  of  $1  per  passenger  based  on  the  official 
registration  of  each  vessel. 

A  fee  of  $2  is  charged  for  each  permit  issued  for  opening 
streets,  moving  buildings,  etc. 

The  Chicago  Public  Library  maintains  a  distributing  station 
in  Seward  Park  for  which  privilege  compensation  is  also  paid 
the  Park  Board,  although  it  should  be  noted  that  the  latter  furnish 
heat,  light,  janitor  service  and  an  attendant  therefor. 

Several  years  ago  the  Park  Board  built  a  boat  house  in  Lin- 
coln Park  for  the  Chicago  Boat  Club  at  a  cost  of  $21,855.  This 
Club  agreed  to  reimburse  the  Board  at  stated  intervals  until  the 
entire  cost  had  been  paid  them,  but  before  many  payments  had 
been  made  the  Club  became  disrupted  and  was  ousted  from  the 
boat  house.  The  Lincoln  Park  Rowing  Club,  which  had  a  $10 
initiation  fee  and  $5  annual  dues,  then  made  an  arrangement 
with  the  Board  whereby  each  member  was  to  pay  the  latter  $10 
a  year  for  use  of  the  boat  house.  This  still  continues  in  force. 
It  is  suggested  that  this  boat  house  be  made  available  to  all  alike 
without  regard  to  membership  in  any  private  club. 


90  Chicago  Bureau  of  Public  Efficiency 

V.    REFECTORIES  AND  LUNCH  ROOMS 


SOUTH  PARK  COMMISSIONERS 

Refectories  and  lunch  rooms  in  the  South  Parks  are  not  let 
out  as  concessions  but  are  operated  by  the  South  Park  Commis- 
sioners. The  location  and  respective  periods  during  which  they 
are  in  operation  are  as  follows : 

Jackson  Park,  Refectory  in  German  Bldg.    Open  June  1  to  Oct.  10. 
Jackson  Park,  Golf  Shelter  Lunch  Room.     Open  April  1  to  Dec.  1. 
Jackson  Park,  Skating  Shelter  Lunch  Room.  Open  fo/  Winter  season. 
Washington  Park,  Refectory.     Open  June  1  to  Oct.  10. 
Washington  Park,  Skating  Shelter  Lunch  Room.     Open  for  Winter 

season. 
Hamilton  Park,  Lunch  Room.     Open  all  year. 
Sherman  Park,  Lunch  Room.    Open  all  year. 
Davis  Square,  Lunch  Room.     Open  all  year. 
Armour  Square,  Lunch  Room.    Open  all  year. 

The  choice  of  dishes  offered  the  public  is  limited  to  those 
which  can  be  easily  and  quickly  prepared.  Besides  enjoying  the 
privilege  of  table  and  lunch  counter  service,  picnic  parties  in 
Jackson  and  Washington  Parks  may,  by  making  a  50-cent  deposit, 
obtain  a  coffee  pot  and  6  granite  cups  and  spoons  for  carrying 
coffee,  tea,  lemonade  and  milk  from  the  buildings. 

The  prices  asked  for  food  average  about  the  same  as  the 
prices  in  privately  conducted  downtown  lunch  rooms  and  restau- 
rants in  the  class  of  Kohlsaat's,  Thompson's,  Child's,  etc.  While 
the  trade  of  these  latter  is  more  regular  and  dependable  through- 
out the  year,  it  is  to  be  noted  that  the  lunch  rooms  in  golf  and 
skating  shelters  and  also  the  large  refectories  are  open  only  dur- 
ing the  busy  seasons,  and,  with  the  exception  of  the  lunch  rooms 
recently  closed,  all  enjoy  a  large  trade.  This  fact,  when  consid- 
ered with  their  exemption  from  the  necessity  of  paying  rent,  leads 
the  Bureau  to  believe  that  they  should  be  at  least  self-supporting. 
Thus  far  they  have  not  been  charged  with  any  general  adminis- 
trative expense  or  even  depreciation  on  buildings. 

The  only  occasion  for  losses  appears  to  be  that  after  stocking 
up  heavily  with  perishable  foods  for  a  Sunday  or  holiday,  the 
weather  sometimes  keeps  away  the  expected  crowds  and  such 
foods  become  spoiled.  An  examination  of  the  records  of  the 
last  five  years  shows  that  the  annual   receipts   have   averaged 


The  Park  Governments  of  Chicago  91 

$93,000,  and  that  the  annual  loss  has  ranged  from  $13,000  to 
$22,000;  the  total  loss  for  the  last  five  years  being  $88,400.  In 
addition  to  the  refectories  and  lunch  rooms  named  on  page  90, 
these  figures  include  lunch  rooms  in  Ogden  Park,  Cornell  Square 
and  Mark  White  Square  which  were  discontinued  early  in  1911 
because  of  the  losses  they  entailed. 

The  inquiry  by  the  Bureau  as  to  the  cause  of  such  large 
losses  disclosed : 

(1)  That  instead  of  maintaining  at  the  central  offices 
a  separate  book  account  with  each  refectory  and  lunch 
room,  only  two  accounts  had  been  used;  one  including  all 
expenditures  for  the  five  refectories  and  lunch  rooms  in 
Jackson  and  Washington  Parks,  and  the  other,  all  expen- 
ditures for  the  seven  lunch  rooms  conducted  in  the  other 
parks  and  squares.  Administrative  officials  were  thus  un- 
able to  determine  the  amount  of  loss  in  any  particular 
plant  as  a  basis  for  locating  and  removing  the  cause  there- 
of. The  accounts,  moreover,  were  so  involved  that  an 
analysis  of  expenditures  was  very  difficult.  Beginning 
January  1,  1911,  a  separate  accounting  was  begun  with 
each  dining  room,  lunch  counter,  soda  fountain  and  cigar 
stand.  These  accounts  already  show  that  some  of  the 
above  activities  are  operating  at  a  profit,  and  attention  is 
thus  directed  to  those  operating  at  a  loss.  In  this  connec- 
tion it  is  suggested  that  a  proportionate  amount  of  expense 
for  general  administration  should  be  charged  to  these  ac- 
counts. The  criticism  sometimes  directed  against  the  op- 
eration of  park  industries  makes  it  desirable  that  the 
accounting  therewith  be  fully  as  accurate  as  with  any 
other  of  the  park  functions  or  activities. 

(2)  That  no  effective  control  is  had  over  food  in  the 
kitchens.  The  system  is  conducive  to  pilfering  by  em- 
ployees, delivery  men  and  others. 

(3)  That  no  effective  control  is  had  over  cash  re- 
ceived from  sales.  An  attempt  has  recently  been  made 
to  secure  more  control  over  cash  sales,  but  the  plan 
has  not  been  carried  to  its  logical  conclusion.     Four  cash 


92  Chicago  Bureau  of  Public  Efficiency 

registers  are  used  in  the  German  Building  refectory  alone, 

and  even  yet  the  cash  from  cigar  sales  is  kept  in  a  drawer 

under  the  counter.     The  purchase  of  an  ornate  electric 

cash  register  for  use  of  the  soda  fountain  cashier  was  a 

useless  extravagance,  as  this  cash  is  susceptible  of  simple 

control  through  specially  numbered  tickets.     The  system 

fails  to  provide  in  any  way  for  recording  the  number  of 

portions  of  the  several  dishes  served.     Blank  cardboard 

sales  tickets  are  charged  in  quantity  to  each  waitress  in 

the   Washington   and   Jackson   Park   establishments,   and 

on  these  she  is  supposed  to  write  the  order  of  each  guest. 

The  waitresses,  however,  often  fail  to  show  the  detail  of 

the  order  and  subsequent  checking  on  that  basis  is  thus 

prevented. 

In  ascertaining  the  above  apparent  reasons  for  losses,  the 

Bureau's  investigators  were  impressed  with  the  importance  of 

and  the  necessity  for  an  experienced  restaurant  man  to  act  as 

general  manager  of  the  refectories  and  lunch  rooms.    The  present 

general  manager  was  promoted  to  the   position   from   that  of 

teamster  and  timekeeper. 

The  Commissioners  operate  an  ice  cream  factory  at  their 
central  plant  in  Washington  Park,  which  furnishes  the  ice  cream 
and  soda  fountain  syrups  sold  at  the  park  refectories  and  lunch 
rooms.  The  equipment  represents  an  investment  of  approxi- 
mately $2,800,  exclusive  of  the  value  of  the  building  occupied. 
The  factory  refrigerating  room  also  accommodates  the  other 
perishable  food  stores  which  are  issued  to  the  refectories  and 
lunch  rooms. 

It  has  been  customary  to  charge  the  factory  with  all  expenses 
incident  to  its  operation  and  to  credit  it  with  the  value  of  the 
output,  computed  at  prices  which  the  parks  would  have  been 
compelled  to  pay  had  the  ice  cream  been  purchased  on  the  market. 
The  accounts  maintained  have  reflected  a  gain  and  loss  during 
the  last  5  years  as  follows: 

Profit    in    1906 $   564.00 

Loss  in   1907 1,852.00 

Profit  in   1908 3,542.00 

Profit    in    1909 237.00 

Profit    in    1910 1,451.00 


The  Park  Governments  of  Chicago  93 

An  examination  of  these  accounts  shows  that  while  no 
charge  has  been  included  against  the  factory  for  a  proportion  of 
overhead  expense,  or  for  depreciation  of  equipment,  neither  has 
any  credit  been  given  for  the  expense  incident  to  receiving  and 
distributing  the  food  stores.  Although  these  items  should  be  com- 
prehended by  the  accounts  it  seems  probable  that  their  omission 
constitutes  approximately  a  debit  and  credit  offset,  and  that 
since  1907  ice  cream  has  been  manufactured  at  costs  slightly 
lower  than  those  at  which  it  could  be  purchased  on  the  market. 

Cream  and  milk  are  purchased  on  annual  contract  based 
on  approved  specifications,  but  it  is  suggested  that  daily  reports 
be  required  from  the  factory  by  the  central  office  which  will  show 
the  results  of  chemical  tests  made  of  the  cream  and  milk  used. 
Aside  from  the  health  motive  for  keeping  the  milk  supply  up  to 
specifications,  such  reports  should  be  available  for  purposes  of 
audit,  as  the  dairy  contract  amounts  to  $15,000  annually.  The 
new  system  of  accounts  has  been  extended  to  the  ice  cream  fac- 
tory this  year.  It  sets  forth  separately  each  month  the  several 
elements  of  cost,  and  is  a  decided  improvement  over  the  former 
factory  accounts. 

WEST  CHICAGO  PARK  COMMISSIONERS 

The  West  Chicago  Park  Commissioners  let  the  restaurant 
privileges  in  Humboldt  Park  December  1,  1906,  without  adver- 
tisement or  soliciting  of  bids,  to  Joseph  P.  Kinsella,  who  still 
holds  the  concession.  Mr.  Kinsella  is  a  member  of  the  47th 
Illinois  General  Assembly  from  the  23rd  district,  having  been 
elected  in  November,  1910.  He  is  a  brother-in-law  of  the  repub- 
lican committeeman  for  the  16th  ward,  who  is  also  public  admin- 
istrator. 

The  first  lease  was  for  one  year  from  December  1,  1906, 
and  provided  for  use  of  the  lower  floor  of  the  refectory  building 
in  Humboldt  Park  as  a  refectory,  and  the  three  living  rooms  of 
the  top  floor  as  a  dwelling.  The  consideration  of  the  lease  was 
$600  per  year  and  the  commissioners  agreed  to  keep  the  build- 
ing in  repair  and  to  furnish  free  all  necessary  light  and  heat — 
both  for  the  restaurant  and  dwelling.     This  lease,  although  for 


94  Chicago  Bureau  of  Public  Efficiency 

only  one  year,  was  allowed  to  continue  in  force  for  over  three 
years,  i.  e.,  until  March  1,  1910,  when  a  new  lease  running  to 
December  1,  1912,  was  signed.  In  addition  to  the  privileges 
granted  in  the  first  lease,  the  second  provided  that  without  addi- 
tional remuneration  to  the  Board,  Kinsella  might  also  use  as  a 
refectory  part  of  the  new  $38,000  pavilion,  and  likewise  have, 
without  charge,  light,  heat  and  repairs  for  that  building.  It  also 
provided  that  he  might  operate  candy  stands  throughout  the 
park.  This  had  previously  been  disallowed  by  Jens  Jensen,  when 
the  latter  was  superintendent  of  parks.  Kinsella,  however,  as 
perquisites  of  his  $600  lease,  has  operated  a  pay  cloak  room, 
rented  skates,  sold  skate  straps,  and  kept  a  piano  in  the  assembly 
hall  and  charged  $3  per  night  for  its  use.  The  assembly  hall  was 
used  for  dances,  receptions,  etc.,  245  times  during  1910,  which 
made  it  possible  for  the  piano  to  earn  $735.  Even  allowing  for 
rental  of  the  piano,  it  is  evident  that  Kinsella  has  made  more 
than  enough  from  that  alone  to  pay  the  entire  $600  annual  rental 
for  the  two  buildings.  Although  he  has  the  exclusive  refreshment 
privilege  and  abundant  table  facilities  in  the  two  pavilions,  he 
sells  only  soda  water,  ice  cream,  candy,  peanuts  and  cigars  during 
the  summer  season.  There  is  no  place  in  the  park  where  the 
public  can  obtain  lunch  or  coffee  except  during  the  skating  season 
in  winter,  when  Kinsella  meets  the  demand. 

The  concession  of  the  old  refectory  in  Garfield  Park,  includ- 
ing living  rooms,  rented  for  $500  per  annum.  In  November, 
1907,  the  commissioners,  desiring  to  tear  down  the  building, 
agreed  to  pay  the  lessee  $1,000  and  cancel  the  lease  which  had 
just  twelve  months  yet  to  run.  This  $1,000  payment  would  not 
have  been  necessary  had  the  lease  originally  been  let  for  a  one 
or  two  year  period  instead  of  for  five  years.  Although  the  pay- 
ment of  $1,000  to  the  lessee  recognized  that  a  profit  was  being 
made  by  him,  the  Board  itself  has  since  operated  two  lunch  rooms 
in  the  same  park  and  one  in  Douglas  Park  with  resulting  losses 
on  all  three.  The  receipts  during  the  year  1910  at  Douglas  Park 
were  $1,963  and  the  loss  $1,026.  At  Garfield  Park  the  receipts 
were  $4,968  and  the  loss  $286.  The  prices  charged  are  practically 
the  same  as  in  the  lunch  rooms  of  the  South  Parks  except  that  ice 


The  Park  Governments  of  Chicago  95 

cream  soda  is  10  cents  and  in  the  South  Parks  5  cents.  Sand- 
wiches and  coffee  are  each  5  cents.  It  is  apparent,  however,  that 
the  losses  are  not  caused  by  the  low  prices  but  by  the  loose 
methods  of  management. 

The  manager  of  each  lunch  room  is  practically  in  independ- 
ent control  thereof.  These  women  buy  their  own  food  supplies, 
and  approve  the  monthly  bills  presented  by  dealers.  There  is  no 
check  to  determine  whether  proper  prices  are  charged.  Vege- 
tables, butter,  eggs  and  meat  are  usually  purchased  with  cash, 
the  manager  turning  in  receipted  bills  therefor  in  lieu  of  cash 
when  settling  with  the  collector  from  the  park  offices.  Not  only 
are  the  economies  possible  by  centralized  purchasing  lost  in  this 
way,  but  the  widest  latitude  is  afforded  for  errors  and  other 
irregularities — including  collusion  with  dealers.  Collections  from 
the  managers  of  amounts  received  are  made  irregularly.  Prior 
to  April,  1911,  the  receipts  were  not  collected  and  the  respective 
managers  themselves  brought  the  cash  to  the  central  office.  There 
is  no  check  whatever  as  to  the  correctness  of  the  amounts  turned 
over.  At  Douglas  Park  the  manager  keeps  a  personal  record  of 
supplies  received,  but  the  manager  of  the  Garfield  Park  lunch 
rooms  keeps  no  books.  The  only  inventories  reported  are  at  the 
end  of  the  season.  Sales  tickets  are  not  made  out  for  customers' 
orders;  the  waitress  merely  collects  the  amount  according  to  the 
menu  card,  and  hands  it  to  the  manager. 

Provision  is  made  at  Garfield  Park  for  supplying  picnic 
parties  with  utensils  for  coffee,  tea,  milk,  lemonade,  etc.,  at  the 
same  prices  obtaining  in  the  South  Parks,  but  no  such  provision 
is  made  at  Douglas  Park. 

LINCOLN  PARK  COMMISSIONERS 

In  January,  1904,  bids  were  asked  for  the  restaurant  conces- 
sion in  Lincoln  Park  for  three  to  five  years.  Six  bids  were 
received,  the  highest  being  from  Paul  Brauer,  a  State  Street 
restaurant  man,  who  offered  $11,000  a  year  for  the  concession. 
He  was  given  a  five  year  contract  at  that  rate,  extending  to 
May  1,  1909.  In  June,  1908,  without  public  advertisement  or 
soliciting  of  bids,  a  new  lease  was  granted  Mr.  Brauer  for  another 


96  Chicago  Bureau  of  Public  Efficiency 

five  years,  i.  e.,  to  May  1,  1914.  The  buildings  covered  by  this 
lease  included  the  south  pond  refectory,  the  north  pond  refectory 
and  refreshment  stands  at  the  animal  house,  at  the  south  end  of 
the  north  pond,  and  at  the  ball-ground.  The  Board  agreed  to 
tear  down  the  old  refectory  building  at  the  south  pond  and  erect 
on  or  near  the  same  site  a  new  building  at  a  cost  not  to  exceed 
$50,000,  unless  a  larger  sum  were  subsequently  agreed  upon.  The 
consideration  was  a  rent  of  $7,500  per  year,  in  monthly  install- 
ments, until  such  time  as  the  new  refectory  was  completed,  when 
the  rent  was  to  be  increased  by  6  per  cent  on  the  agreed  cost  of 
the  new  building.  By  a  supplementary  agreement,  dated  Decem- 
ber 9,  1908,  it  was  provided  that  should  the  new  building  cost  over 
$60,000  additional  rent  of  $600  a  year  would  be  payable  in 
monthly  installments.  The  actual  cost  of  the  building  was  over 
$83,200.  The  lease  provides  that  the  lessee  shall  keep  all  build- 
ings and  stands  in  repair  at  his  own  expense.  He  furnished  the 
fixtures  in  all  the  buildings  and  also  fuel  for  heating.  He  was 
released  in  April,  1910,  from  the  contract  requirements  as  to 
occupancy,  repairing,  heating  and  lighting  of  the  north  pond 
refectory  and  was  given  permission  to  erect  a  stand  on  the  park 
extension.  Beginning  with  May,  1910,  the  rent  received  has 
been  at  the  rate  of  $11,100  per  year,  computed  as  follows: 

Original   rental    $  7,500 

Six  per  cent,  en  $50,000 3,000 

Additional  rent   600 

$11,100 
The  concessionaire  conducts  a  high  grade  refectory  in  the 
new  building,  but  instead  of  catering  to  the  masses  of  the  people 
who,  it  is  generally  conceded,  are  particularly  in  need  of  park 
facilities,  this  establishment  caters  to  the  well-to-do  classes  who 
desire,  and  are  able  to  pay  for,  high  grade  service.  A  specialty 
is  made  of  private  dinner  parties  and  ladies'  afternoon  coffee 
parties,  and  it  is  so  advertised  on  the  menu  cards.  The  average 
citizen  visiting  the  park  with  his  family  is  precluded  from  dining 
therein  by  the  high  prices  charged  for  food.  A  cup  of  coffee,  or 
a  sandwich,  the  most  popular  lunch  with  poorer  people  visiting 
parks,  cannot  be  obtained  for  less  than  10  cents  each.  The  prices 
of  other  dishes  are  in  proportion. 


The  Park  Governments  of  Chicago  97 

Picnic  parties,  however,  can  obtain  coffee  at  25  cents  a  quart, 
and,  by  depositing  75  cents,  a  can  and  3  cups  and  spoons  can  be 
had.  These  charges  also  are  higher  than  in  the  South  and  West 
Parks. 

In  the  Seward  Park  building  a  lunch  counter  was  operated 
for  a  time  by  the  Park  Board  itself,  but  the  receipts  being  less 
than  the  expenses,  and  the  demand  for  food  limited,  the  service 
was  abandoned. 

VI.    BOATS 

Rowboats  are  operated  by  the  respective  Park  Boards  on 
the  lagoons  and  ponds  of  all  the  large  parks,  a  small  fee,  based 
on  the  hour  unit,  being  charged  as  a  rental.  Canoes  were  also 
provided  at  one  time,  but  their  use  was  discontinued,  owing  to 
the  large  number  of  accidents  resulting  therefrom.  The  row- 
boats  have  usually  been  adequate  in  number,  and  are  compara- 
tively safe. 

An  examination  of  the  accounts  shows  that  in  all  parks 
where  boats  have  been  operated  the  receipts  have  exceeded  the 
expenses  of  operation  and  maintenance.  This  result  has  been 
due  more  to  the  popularity  of  this  form  of  amusement  than  to 
the  financial  control  exercised  over  the  fees  collected.  The  latter 
has  been  conducive  to  "knocking  down"  by  park  employees.  It 
is  this  problem  in  particular  which  is  here  discussed. 

SOUTH  PARK  COMMISSIONERS 

When  the  new  accounting  system  for  the  South  Park  Board 
was  being  devised,  the  lack  of  control  over  boat  receipts  was  rec- 
ognized. Beginning  with  the  present  season  (1911),  a  complete 
change  in  methods  of  control  was  therefore  adopted  and  enforced. 
The  fees  remained  the  same,  being  15  cents  per  hour  for  a  single 
boat  and  25  cents  for  a  double  boat,  but  under  the  former  system 
no  advance  deposit  was  required. 

Under  the  present  system  specially  made  cash  registers,  cost- 
ing over  $500  each,  and  several  electric  time  stamps  have  been 
installed  in  Jackson  and  Washington  Parks.  A  one-dollar  de- 
posit is  required  in  advance  from  each  renter.    When  the  dollar 


98  Chicago  Bureau  of  Public  Efficiency 

deposit  is  rung  up  the  machine  discharges  a  ticket,  which  is  given 
to  the  renter  and  on  which  his  time  "out"  and  "in"  is  subse- 
quently stamped  by  an  electric  time  stamp.  On  presenting  his 
ticket  again  to  the  cashier  for  refund,  the  amount  of  the  latter 
is  supposed  to  be  rung  up  and  registered  on  a  separate  totalizer 
in  the  machine.  The  cashier  is  thus  accountable  at  the  end  of 
the  day  for  the  difference  between  the  total  amount  of  deposits 
and  refunds  respectively  registered.  If,  however,  when  tickets 
are  presented  for  refund  on  which  the  charge  to  be  deducted  is 
over  50  cents,  the  amount  of  charge  is  rung  up  instead  of  the 
amount  of  refund,  the  cashier  may  easily  "beat"  the  machine  and 
the  Park  Board  by  the  difference  between  the  two  amounts.  The 
requiring  of  a  deposit,  even  of  50  cents,  as  in  the  smaller  South 
Side  parks,  often  precludes  persons  from  renting  boats  who 
would  like  to  do  so,  and  also  fails  to  secure  any  better  financial 
control  than  is  otherwise  possible.  With  the  aid  of  the  police 
boats,  there  should  be  but  small  loss  from  non-payment  of 
charges,  even  if  no  deposit  were  required,  and  the  few  boats 
which  might  be  "beached"  could  be  brought  in  by  the  police  boats, 
as  was  formerly  done,  since  they  have  been  retained  in  commis- 
sion even  under  the  present  system. 

It  is  therefore  suggested  (1)  that  deposits  be  no  longer 
required;  (2)  that  tickets  in  books  or  on  roll  spindles  be  charged 
to  each  boat  cashier  through  individual  ledger  accounts;  (3)  that 
the  use  of  mechanical  time  stamps  be  continued  in  Jackson  and 
Washington  Parks  and  extended  to  the  smaller  parks  in  order 
to  show  on  each  ticket  the  time  "out"  and  "in";  (4)  that  the 
amount  charged  be  entered  on  the  ticket  and  the  latter  retained 
by  the  park  officials,  the  ticket  discharged  by  the  cash  register 
when  the  amount  is  rung  up  being  given  to  the  customer  as  a 
receipt.  In  this  way  only  one  amount  would  be  registered  on  the 
tape  in  the  machine,  which  should  balance  with  the  cash  in 
drawer  and  amounts  shown  on  the  tickets.  The  correctness  of 
the  latter  might  easily  be  verified  daily  by  an  auditing  clerk  in  the 
central  offices,  since  the  time  "out"  and  "in"  and  also  the  amount 
charged  are  all  stamped  thereon.  Cash  registers  much  less  expen- 
sive would  meet  all  requirements  of  such  a  system. 


The  Park  Governments  of  Chicago  99 

Electric  and  naptha  launches  are  also  operated  in  Jackson 
Park,  and  a  barge  in  Washington  and  Sherman  Parks  at  a  profit 
to  the  management  and  a  source  of  pleasure  to  visitors.  The 
present  as  well  as  the  former  system  of  controlling  the  cash 
receipts  therefrom  is  adequate. 


WEST  CHICAGO  PARK  COMMISSIONERS 

The  present  system  of  controlling  from  the  central  office 
boat  receipts  in  Humboldt,  Garfield  and  Douglas  Parks  is  sus- 
ceptible of  being  "beaten"  by  the  cashiers  at  the  boat  landings. 
The  system  described  above  for  South  Park  Commissioners,  in- 
cluding controlled  tickets,  electric  time  stamps  and  cash  registers, 
is  suggested  for  adoption  by  the  West  Park  Board. 

Until  1909,  only  one  book  account  was  maintained  for  boats, 
although  they  were  operated  in  three  West  Side  Parks.  The  one 
account  referred  to  was  very  inaccurate.  In  1909  and  1910  more 
care  was  taken  in  recording  boat  receipts  and  expenditures. 

Attention  is  called  to  the  fact  that  an  advance  in  prices 
charged  for  the  use  of  boats  is  made  from  15  and  25  cents  on 
week  days  to  25  and  35  cents  on  Sundays  and  holidays.  Thou- 
sands of  poor  people  are  able  to  visit  the  parks  only  on  Sundays 
and  holidays,  and  the  policy  of  taking  advantage  of  the  increased 
demand  for  boats  to  raise  the  charges  thereon  seems  questionable. 

LINCOLN  PARK  COMMISSIONERS 

The  use  of  time  clock  stamps  supplementary  to  controlled 
tickets,  together  with  the  keeping  of  the  public  from  the  boat 
landing  until  tickets  are  purchased,  is  also  suggested  to  the  Lin- 
coln Park  Board  as  a  means  for  better  insuring  proper  charges 
and  the  return  of  all  collections. 

It  is  submitted  that  since  boats  should  be  operated  primarily 
for  the  direct  benefit  of  the  people,  rather  than  as  a  source  of 
revenue,  single  boats  be  made  available  at  15  cents  an  hour,  as  in 
the  South  and  West  Parks.  A  fee  of  25  cents  an  hour  is  now 
charged  on  all  boats. 


100  Chicago  Bureau  of  Public  Efficiency 

SUMMARY  AND  CONCLUSIONS  OF  PART  TWO 

Methods  of  Purchase  (exclusive  of  coal). 

1.  Centralized  purchasing  is  more  advantageous  than 
decentralized  purchasing  in  that  it  gives  to  the  central 
bureau  a  larger  buying  power.  Larger  buying  power 
usually  secures  lower  prices.  It  also  makes  it  possible  to 
maintain  a  better  equipped  purchasing  plant  and  better 
financial  control. 

2.  All  of  the  Park  Boards  buy  practically  the  same 
kinds  of  commodities.  Logical  and  economical  organiza- 
tion would  therefore  provide  that  all  the  buying  be  done 
through  one  central  agency  and  thus  secure  the  advan- 
tages of  the  combined  buying  power.  Under  the  present 
multiplicity  of  park  governments,  each  Park  Board  does 
its  own  purchasing.  Moreover,  the  purchasing  for  each 
Board  has  often  been  done  by  employees  other  than  the 
respective  purchasing  agents.  Owing  to  such  conditions 
the  buying  has  been  in  comparatively  small  amounts  and 
at  comparatively  high  prices. 

3.  Commodities  have  been  purchased  aggregating  thou- 
sands of  dollars  each  within  a  single  month  without  public 
advertisement,  written  bids  or  written  contracts. 

4.  On  all  purchases,  except  unusually  large  orders,  it 
has  been  customary  to  solicit  and  receive  bids  by  telephone. 
In  a  large  proportion  of  instances,  only  one  or  two  bids 
were  requested.  Telephone  bids  are  conducive  to  fraud  in 
several  ways.  It  is  suggested  that  except  on  very  small 
orders  both  requests  and  bids  be  made  in  writing  and 
preserved  as  a  matter  of  record. 

5.  The  Park  Boards  purchase  large  quantities  of  soil. 
Payments  for  soil  have  often  been  based  upon  the  number 
of  cubic  yards  as  determined  by  the  number  of  loads  deliv- 
ered. When  soil  is  loosened  and  shoveled  into  wagons  it 
swells  from  20  to  35  per  cent.  Payments  based  upon 
wagon  measurements  have  therefore  exceeded  the  amounts 
which  should  have  been  paid  in  about  the  same  proportion 


The  Park  Governments  of  Chicago  101 

that  the  soil  has  swelled.  It  is  suggested  that  hereafter 
payments  for  soil  be  based  only  on  calculations  made  by 
the  park  engineers.  By  running  "cross  sections"  where 
the  filling  is  to  be  made  it  is  possible  to  compute  accu- 
rately the  quantity  of  soil  necessary  for  filling. 

6.  Equally  important  with  centralization  of  buying 
power  is  standardization  by  the  Park  Boards  of  the 
equipment,  materials,  and  supplies  purchased  by  them. 
Much  money  is  now  wasted  through  lack  of  standardiza- 
tion. For  example,  instead  of  buying  a  large  number  of 
different  grades  of  lubricating  oil,  three  or  four  grades 
should  be  adopted  as  standard,  each  grade  being  selected 
for  a  particular  use  for  which  it  was  proved  to  be  most 
efficient.  Specifications  should  be  drawn  describing  the 
standards  adopted  and  on  these  specifications  manufac- 
turers should  be  asked  to  bid.  The  oil  purchases  being 
reduced  to  a  limited  number  of  grades,  larger  quantities 
of  these  would  be  purchased.  The  transactions  would  be 
made  more  simple  and  fair  to  both  dealer  and  buyer 
and  lower  prices  secured  by  the  latter.  A  uniformity  of 
the  article  purchased  is  assured  under  such  a  method  as  the 
specifications  afford  a  basis  on  which  the  purchaser  may 
test  deliveries. 

7.  After  a  careful  study  of  the  situation,  supplemented 
by  the  opinions  of  purchasing  agents  of  large  private  cor- 
porations in  Chicago,  the  Bureau  concludes  that  if  all  the 
Park  Boards  were  consolidated  with  the  city  government, 
the  additional  buying  power  thus  given  the  city  purchasing 
agent,  if  supplemented  by  proper  standardization  and 
efficient  methods  of  purchase  and  inspection,  would  enable 
an  average  saving  of  not  less  than  10  per  cent,  to  be  made 
each  year  on  the  total  purchases  of  supplies  and  materials 
now  made  by  the  Park  Boards.  These  purchases  now 
exceed  $1,000,000  annually;  a  10  per  cent,  saving  would 
therefore  amount  to  $100,000  annually. 


102  Chicago  Bureau  of  Public  Efficiency 

Purchase  of  Coal. 

The  adoption  of  defective  specifications  by  each  of  the  three 
park  boards  and  the  failure  to  purchase  cheaper  grades  of  coal, 
due  in  some  instances  to  the  use  of  furnaces  in  which  it  was 
not  practicable  to  burn  such  coal,  has  resulted  in  large  losses. 
The  loss  due  to  the  failure  to  use  cheaper  grades  of  coal  is 
estimated  at  $8,400  for  the  year  1910.  To  avoid  these  losses  in 
the  future,  the  following  suggestions  are  made: 

The  Three  Park  Boards: 

(a)  Facilities  for  weighing  should  be  stated  definitely. 

(b)  Storage  capacity  of  bins  and  locations  of  scales  should  be 
given. 

(c)  Contractors  should  be  required  to  furnish  bills  of  lading 
covering  all  coal  delivered  in  car  lots,  or  from  cars  on  tracks. 

(d)  Provision  for  occasional  screening  tests  should  be  made. 

(e)  Contracts  for  bituminous  coal  should  be  let  the  first  of  July, 
Bids  should  be  opened  not  later  than  June  25,  so  that  deliveries 
may  begin  under  new  contracts  promptly  upon  expiration  of  the 
old  contracts. 

South  Park  Commissioners'- 

(a)  Penalty  for  excess  of  fine  coal  should  be  increased. 

(b)  If  the  furnace  settings  in  the  buildings  of  the  small  parks 
were  changed  so  as  to  furnish  more  air  for  combustion,  it  would 
cost  only  about  $150  for  each  furnace  and  would  enable  Illinois 
or  Indiana  lump  coal  to  be  substituted  for  anthracite  and  Poca- 
hontas at  those  plants.  Based  on  the  coal  used  in  1910  this  would 
enable  a  saving  of  about  $6,200  to  be  made  on  the  annual  coal  bill. 

West  Chicago  Park  Commissioners: 

(a)  Provision  for  weighing  by  representatives  of  the  Park 
Board  should  be  made,  payments  to  be  based  on  their  weights. 

(b)  Bond  required  should  be  reduced  from  50  to  25  per  cent 
of  estimated  amount  of  contract  in  order  not  to  discourage  small 
dealers  from  bidding. 

(c)  Separate  bids  should  be  requested  for  the  different  parks. 

(d)  Pocahontas  coal  should  be  substituted  for  anthracite  in 
Union,  Douglas  and  Garfield  Parks.  Due  to  the  failure  to  use  the 
cheaper  coal  in  1910,  the  West  Park  Board  lost  approximately  $700. 
The  Bureau  recommends  that  when  new  buildings  are  constructed, 
furnaces  of  a  smokeless  type  be  installed  in  which  Illinois  or  Indiana 
coal  can  be  burned. 

Lincoln  Park  Commissioners: 

Little  care  appears  to  have  been  exercised  in  the  preparation  of 
the  1910-11  specifications.  They  did  not  operate  to  invite  competi- 
tion. In  fact,  in  response  to  requests  for  bids  in  April,  1910,  only 
three  proposals  were  received,  two  of  which  were  from  affiliated 
corporations  that  bid  only  on  Pocahontas  and  anthracite;  the  other 
bid  only  on  Illinois  washed  nut  and  pea.  In  addition  to  the  above 
mentioned  suggestions,  the  following  are  offered : 


The  Park  Governments  of  Chicago  103 

(a)  Quality  and  size  of  coal  and  limitations  as  to  heat  value, 
ash  and  sulphur  should  be  definitely  described. 

(b)  Delivery  stations   should  be  listed. 

(c)  The  British  Thermal  Unit  method  of  testing  should  be 
adopted  and  coal  paid  for  on  a  basis  of  heat  value.  This  method 
of  testing  was  used  in  1910  but  abandoned  in  1911. 

(d)  Penalty  for  excess  of  fine  coal  should  be  imposed. 

(e)  Bond  required  should  be  reduced  from  50  to  25  per  cent 
of  estimated  amount  of  contract  in  order  not  to  discourage  bids 
from   small  dealers. 

(f)  Separate  bids  should  be  requested  for  the  different  parks 
and  for  the  new  park  extension  work. 

(g)  A  representative  of  the  Commissioners  should  be  present 
at  all  times  when  coal  is  being  delivered  on  board  scows. 

(h)  Illinois  or  Indiana  lump  coal  should  be  substituted  for 
Pocahontas  at  the  propagating  houses  and  the  shipyard  since  the 
equipment  at  those  places  warrants  it  and  Pocahontas  for  anthracite 
at  the  hot-water  heating  plants  in  Seward,  Stanton  and  Hamlin 
Parks.  Due  to  the  failure  to  use  the  cheaper  coal  last  year,  the 
Lincoln  Park  Board  lost  approximately  $1,500.  The  Bureau  recom- 
mends that  when  new  buildings  are  constructed,  furnaces  of  a 
smokeless  type  be  installed,  in  which  Illinois  or  Indiana  coal  can 
be  burned  without  creating  a  smoke  nuisance. 


Since  the  Bureau's  inquiry  into  the  subject  of  coal  was  completed, 
a  copy  of  the  new  specifications  has  been  received,  under  which  contracts 
for  1911-12  have  been  let  by  the  Lincoln  Park  Board.  While  some  im- 
provement is  shown  over  the  1910-11  specifications,  they,  too,  are  inferior 
to  the  1909-10  specifications. 

Small  Parks  and  Playgrounds. 

1.  The  establishment  of  a  system  of  small  parks  and 
playgrounds  throughout  the  city,  begun  by  the  Special 
Park  Commission  of  the  City  Government,  has  been  con- 
tinued by  the  independent  Park  Boards.  The  South  Park 
Board  is  deserving  of  special  credit  for  its  work  in  this 
direction.  The  West  and  Lincoln  Park  Boards  have  also 
established  a  number  of  small  parks  and  playgrounds. 

2.  The  fieldhouses,  playgrounds,  and  swimming  pools 
located  on  the  three  sides  of  the  city  respectively  are  dis- 
proportionate in  number  to  both  the  child  and  adult  popu- 
lation thereof.  Consolidation  of  the  park  districts  should 
operate  to  secure  a  more  equitable  distribution  of  these 
facilities  throughout  the  city. 

3.  Until  two  years  ago  there  was  confusion  of  author- 
ity in  the  fieldhouses  of  the  South  Park  Board  which 
resulted  in  inefficiency  and  waste.     This  has  been  reme- 


104  Chicago  Bureau  of  Public  Efficiency 

died  to  a  considerable  extent,  but  it  is  suggested  that  the 
untoward  conditions  be  removed  entirely  by  dispensing 
with  the  services  of  the  building  foreman  in  each  of  the 
ten  fieldhouses  and  also  the  general  building  foreman. 
Their  salaries  amount  to  $11,850  annually  and  they  are 
unnecessary. 

4.  It  is  also  suggested  that  the  directors  of  fieldhouses 
and  playgrounds  should  have  authority  over  the  police  de- 
tailed thereto,  as  well  as  over  other  persons  employed  in 
the  field  houses.  The  Fieldhouse  Director  should  be  placed 
in  charge  of  the  small  park  to  the  same  extent  that  the 
principal  of  a  school  is  placed  in  charge  and  held  respon- 
sible. The  Fieldhouse  Director  should  be  responsible  to 
the  General  Fieldhouse  Director,  who  in  turn  would  be 
responsible  to  the  General  Superintendent. 

Special  Privileges. 

1.  The  South  Park  Board  has  pursued  the  general 
policy  of  not  granting  special  concessions  or  privileges 
to  anyone.  The  refectories,  lunch  rooms,  and  boats  in 
the  parks  are  all  operated  by  the  Board  for  the  benefit  of 
the  public  at  large. 

2.  Aside  from  an  improper  piano  concession  in  the 
Garfield  and  Douglas  Park  Assembly  Halls,  which  has 
been  stopped  since  this  inquiry  began,  and  the  special 
privileges  permitted  in  Humboldt  Park  at  an  insufficient 
remuneration,  the  West  Park  Board  has  pursued  much 
the  same  policy  as  the  South  Park  Board. 

3.  The  Lincoln  Park  Board  has  utilized  privileges  as 
a  source  of  revenue.  For  illustration,  this  Board  is  the 
only  one  that  grants  concessions  for  refreshment  stands, 
pony  carriages,  etc.,  in  the  parks.  Lincoln  Park  is  also 
the  only  park  in  which  a  high  priced  exclusive  restaurant 
is  permitted  to  operate.  A  boat  club  house  is  available  at 
$10  a  year  to  those  who  first  pay  a  private  club  an  initia- 
tion fee  of  $10  and  $5  annual  dues.  It  is  suggested  that 
the  boat  club  house  be  made  available  to  all  alike  without 


The  Park  Governments  of  Chicago  105 

regard  to  membership  in  any  private  club.  In  all  these 
matters  the  policy  of  the  other  Boards  is  preferable 
because  it  brings  the  park  facilities  closer  to  those  who 
need  them. 

Refectories  and  Lunch  Rooms. 

1.  The  restaurant  service  offered  at  Lincoln  Park, 
although  a  source  of  considerable  revenue  to  the  Park 
Board,  falls  far  short  of  the  service  offered  by  the  South 
Park  Board.  It  is  suggested  that  when  the  contract  of 
the  present  concessionaire  expires,  service  of  this  na- 
ture be  not  made  a  matter  of  revenue,  but  be  furnished 
the  public  at  cost  by  the  Lincoln  Park  Board. 

2.  The  South  Park  Board  has  established  excellent 
restaurant  service  in  several  of  the  parks  under  its  control. 
In  a  measure  this  has  been  attempted  by  the  West  Park 
Board,  although  not  so  extensively  or  completely.  Thus 
far,  however,  this  service  has  resulted  in  financial  losses 
to  those  Boards.  The  losses  have  been  accepted  by  the 
respective  managements  much  as  a  condition  to  be 
expected  and  excused  on  the  ground  of  the  commendable 
service  rendered.  The  Bureau  has  made  a  careful  study 
of  the  conditions  and  finds,  however,  many  reasons  for 
believing  that  the  refectories  and  lunch  rooms  now  oper- 
ated in  the  South  and  West  Parks  might  be  made  self- 
supporting  without  any  detraction  from  the  excellency 
of  the  service.  The  accomplishment  of  this  would  prob- 
ably extinguish  the  present  deficit  of  $20,000  per  year. 
The  following  suggestions  are  submitted  as  essentials 
thereto : 

(a)  That  the  South  Park  Board  employ  a  capable 
and  experienced  restaurant  manager,  who  shall  be 
placed  in  general  charge  over  all  refectories  and  lunch 
rooms  operated  by  the  Board. 

(b)  That  all  supplies  be  purchased  by  the  regular 
purchasing  agent  of  each  Board,  and  requisitioned  by 
the  sub-managers  from  day  to  day  only  as  needed, 


106  Chicago  Bureau  of  Public  Efficiency 

great  care  being  taken  by  the  general   manager   to 
guard  against  over-stocking. 

(c)  That  inventories  of  suppHes  on  hand  at  the 
close  of  each  day's  business  be  prepared  by  each  sub- 
manager  on  blank  forms  provided  for  that  purpose 
and  transmitted  to  the  central  office. 

(d)  That  all  cash  receipts  (except  a  small  work- 
ing balance)  be  transmitted  daily  to  the  central  offices, 
together  with  a  separate  report  of  sales  from  refec- 
tories, lunch  rooms,  soda  fountains  and  cigar  stands 
respectively. 

(e)  That  standard  schedules  be  adopted  and  en- 
forced showing  the  number  of  portions  which  may 
be  served  under  average  conditions  from  each  unit 
measure  of  the  more  expensive  kinds  of  supplies  used. 

(f)  That  sales  tickets  be  used  for  food  orders 
and  the  detail  thereof  entered  on  the  ticket. 

(g)  That  it  be  made  the  duty  of  an  auditing  clerk 
in  the  central  offices  to  assemble  for  each  day  on  a 
tally  sheet  the  portions  sold,  and  check  the  totals 
thereof  with  the  quantities  of  supplies  delivered  and 
inventories  reported.  Such  checking  would  not  need 
to  be  complete  each  day  but  sufficient  tests  should  be 
made  to  disclose  wrong  doing  or  bad  management, 
and  to  secure  a  good  moral  effect  on  all  persons 
handling  food  supplies.  Kitchen  shortages  could  not 
be  excused  as  "spoiled  goods"  for  any  length  of  time 
without  proving  bad  management. 

(h)  That  a  separate  accounting  be  had  in  the 
central  offices  with  each  refectory,  lunch  room,  soda 
fountain  and  cigar  stand. 

(i)  That  measures  be  enforced  to  prevent  em- 
ployees from  leaving  the  buildings  with  packages, 
hand  bags,  etc.,  without  disclosing  their  contents  to  the 
manager,  and  to  prevent  delivery  men  or  those  remov- 
ing garbage  from  access  to  the  kitchens  except  under 
the  eyes  of  the  manager. 


The  Park  Governments  of  Chicago  107 

(j)     That  managers  be  called  to  account  for  losses 
sustained. 

All  of  the  above  suggestions,  except  (a)  apply  to  the 
West  Park  Board,  and  (a),  (c),  (e),  (g),  (i)  and  (j) 
still  apply  to  the  South  Park  Board.  The  latter  should 
also  enforce  (b)  and  (f)  more  strictly  than  at  present. 

3.  If  the  West  and  Lincoln  Park  Boards  should  decide 
to  continue  to  lease  the  pavilions  in  Humboldt  and  Lincoln 
Parks  respectively,  as  concessions,  it  is  suggested  that  the 
future  leases  do  not  exceed  two  years,  and  be  let  to  the 
highest  qualified  bidder  after  public  advertisement  solicit- 
ing bids  thereon.  The  West  Park  Board  especially  is 
receiving  very  inadequate  return  for  the  privileges  enjoyed 
by  the  concessionaire. 

Boats. 

1.  Rowboats  are  operated  at  a  profit  by  the  respective 
Park  Boards  on  the  lagoons  and  ponds  of  all  the  large 
parks.  Inadequate  means  have  been  taken  to  insure  the 
return  of  all  the  cash  collections  for  use  of  the  boats.  The 
system  of  control  outlined  herein  for  the  South  Park 
Board  is  also  suggested  to  the  West  and  Lincoln  Park 
Boards  for  adoption. 

2.  The  South  Park  Board  requires  a  one  dollar  ad- 
vance deposit  on  boats  rented  in  the  large  parks  and  a 
deposit  of  fifty  cents  in  the  small  parks.  Such  deposits 
are  not  necessary  for  financial  control  and  often  prevent 
people  from  renting  boats  who  would  like  to  do  so.  It  is 
suggested  that  the  plan  be  discontinued. 

3.  It  is  also  suggested  that  the  practice  of  the  West 
Park  Board  in  charging  ten  cents  an  hour  extra  on  Sun- 
days and  holidays  be  discontinued. 

4.  The  minimum  charge  by  the  Lincoln  Park  Board  for 
boats  is  twenty-five  cents  an  hour.  It  is  suggested  that 
single  boats  be  made  available  at  fifteen  cents  an  hour, 
as  is  done  by  the  West  and  South  Park  Boards. 


I 


PART  THREE 


I.    POLICE  SERVICE 


Each  of  the  large  park  boards  maintains  a  police  force 
which  is  separate  from  and  independent  of  the  city  police  force 
of  Chicago.  The  investigation  conducted  by  the  Bureau  showed 
so  many  of  the  conditions  affecting  the  park  police  to  be  similar 
in  the  three  Boards  that  the  latter  in  their  relation  to  the  subject 
are  here  treated  jointly. 

APPOINTMENT  AND  DISCHARGE 

Prior  to  July  1,  1911,  the  date  when  the  Civil  Service  Law 
took  effect,  park  police  were  employed  and  discharged  under  the 
following  procedure : 

The  South  Park  police  were  appointed  by  the  general  super- 
intendent after  approval  by  the  Board,  the  first  six  months  of 
service  being  probationary.  Each  applicant  filled  out  a  printed 
form  which  was  then  filed.  Examinations  were  confined  to 
physical  tests  and  tests  of  ability  to  read,  and  to  write  intelligent 
reports  of  arrests  and  accidents.  The  general  superintendent  had 
power  to  discharge  without  any  preliminary  formalities.  His 
reasons  for  discharges  were  reported  subsequently  to  the  Board. 

The  West  Park  police,  the  Bureau  is  informed,  were  ap- 
pointed by  the  President,  through  the  Secretary,  upon  recom- 
mendation of  ward  committeemen.  No  physical  or  mental  exami- 
nations were  held.  The  President  exercised  the  power  of  dis- 
charge. No  hearings  were  granted  nor  specific  reasons  given 
other  than  "for  the  good  of  the  service."  An  examination  of  the 
rolls  of  the  last  five  years  shows  a  continuity  of  appointments 
and  discharges. 

The  Lincoln  Park  police  were  appointed  by  the  Service 
Committee  of  the  Board.  No  formal  application  blank  was  used, 
but  the  applicant  was  required  to  write  a  letter,  which  was  filed. 
No  other  mental  examination  was  conducted,  but  there  was  a 

109 


110  Chicago  Bureau  of  Public  Efficiency 

physical  examination  by  the  captain  and  the  service  committee. 
Men  were  appointed  on  a  sixty-day  probation.  Discharges  were 
for  cause  only  and  after  trial  before  a  trial  board,  comprising 
the  service  committee,  general  superintendent,  and  captain  of 
police. 

Since  July  1,  1911,  a  superintendent  of  employment  has 
been  appointed  by  each  park  board  and  employees  are  now  hired 
and  discharged  in  conformity  with  the  provisions  of  the  new 
Civil  Service  laws. 

INCREASING  COST  OF  PARK  POLICE 

The  increasing  cost  of  park  police  service  from  year  to  year 
is  shown  by  the  following  table  of  salary  costs,  based  on  the  pay- 
rolls of  the  last  five  years : 

Total       Per  Cent 
Amount  of  South.  West.        Lincoln. 

Increase. 

1906    $249,977  $132,382       $  78,804       $38,791 

1907    259,856  4  131,360  86,507  41,989 

1908    277,666  7  139,660  93,771  44,235 

1909    287,678  4  144,588  100,154  42,936 

1910  321,225  12  162,717  107,721  50,787 

The  police  salary  cost  of  the  South,  West  and  Lincoln  Park 
systems  for  the  year  1910  shows  an  increase  over  1906  of  23, 
37,  and  31  per  cent.,  respectively.  The  aggregate  increase  is  28.5 
per  cent.  During  the  same  period  the  park  acreage  increased 
only  7,  2,  and  7  per  cent.,  respectively.  The  South  Park  Board 
policed  33  miles  of  boulevards  in  1910,  however,  as  against  17^ 
miles  in  1906,  and  the  West  Park  Board  policed  25  miles  as  against 
20  in  1906.  The  boulevard  mileage  policed  by  the  Lincoln  Park 
Board  remained  practically  the  same.  Although  small  increases 
in  salary  rates  were  made  during  the  period,  the  larger  salary 
cost  is  mostly  due  to  increases  in  the  number  of  patrolmen.  An 
examination  of  the  police  assignments  shows  that  the  additional 
patrolmen  employed  have  been  used  not  only  to  patrol  parks  and 
boulevards  since  added,  but  also  to  increase  the  forces  in  the 
parks  and  boulevards  patrolled  in  1906.  With  the  exception  of 
sergeants  in  the  West  and  Lincoln  Parks,  the  salary  rates  paid 
police  differ  in  each  of  the  three  systems. 


The  Park  Governments  of  Chicago  111 

At  the  beginning  of  1911,  the  South,  West  and  Lincoln  Park 
forces  numbered  152,  89,  and  49  men  respectively,  a  total  of 
290  men.  Six  months  later,  i.  e.,  July  1,  1911,  the  date  when 
the  Civil  Service  Law  became  effective,  the  rosters  of  the  respec- 
tive Boards  showed  169,  115  and  59,  a  total  of  343  men,  an 
increase  which  will  add  many  thousands  of  dollars  annually  to 
the  already  large  cost  shown  above  for  1910. 

DUPLICATION  OF  POUCE  WORK 

The  park  police  may  make  arrests  for  infraction  of  state 
laws,  city  ordinances,  and  ordinances  adopted  by  the  Park  Boards, 
but  only  on  property  under  the  jurisdiction  of  the  respective  Park 
Boards.  They  have  no  jurisdiction  within  territory  under  control 
of  the  city.  The  park  governments  do  not  maintain  lockups.  Park 
police  take  their  prisoners  to  city  police  stations  and  the  cases 
are  heard  before  the  Municipal  Court  of  the  city.  The  city  boards 
park  prisoners,  but  charges  the  expense  against  the  Park  Com- 
missions. A  recent  court  decision  has  awarded  the  latter  a  pro- 
portion of  the  fines  collected  in  such  cases. 

All  the  large  parks  in  the  city  and  all  improved  boulevards 
are  patrolled  by  park  police  both  day  and  night,  with  the  excep- 
tion that  the  West  Chicago  and  Lincoln  Park  police  do  not  patrol 
boulevards  after  11  p.  m. 

City  police  in  uniform  do  not  patrol  any  of  the  large  parks. 
However,  although  the  city  has  relinquished  jurisdiction  over 
boulevards  maintained  by  the  Park  Boards,  the  city  police 
continue  to  patrol  all  boulevards  outside  the  parks  in  the  same 
manner  as  other  streets,  because  the  city  police  department 
feels  morally  responsible  for  preserving  the  peace  and  pro- 
tecting the  lives  and  property  of  citizens  living  thereon,  the 
same  as  on  other  streets.  The  reason  for  this  is  that  crimes  com- 
mitted on  the  boulevards  are  charged  by  the  public  against  the 
city  police  of  the  district  in  which  the  crime  is  committed.  The 
policing  of  boulevards  outside  the  parks  by  park  police,  therefore, 
causes  a  duplication  of  the  policing  thereon,  and  it  is  noteworthy 
that  a  large  proportion  of  the  police  force  of  each  Park  Board 
is  assigned  to  boulevard  duty,  over  half  of  the  South  Park  force. 


112  Chicago  Bureau  of  Public  Efficiency 

or  80  men,  being  thus  employed  when  inquiry  was  made  in  June 
of  this  year. 

An  example  of  duplication  of  work  on  the  boulevards  by 
park  police  is  to  be  found  on  Jackson  Boulevard  from  Michigan 
Avenue  to  the  river.  The  city  police  department  patrols  this 
boulevard  the  same  as  other  downtown  streets,  and  also  has  14 
men  of  the  traffic  squad  doing  duty  thereon.  This  is  deemed 
adequate  by  the  city  police  officials,  and  yet  the  South  Park 
Board  has  had  several  park  police  on  this  same  boulevard  since 
it  was  taken  over  from  the  city.  Inquiry  during  1911  disclosed 
8  park  policemen  thereon  in  addition  to  the  city  force.  The 
salaries  of  these  8  men  aggregate  $8,800  per  year. 


OTHER  CONDITIONS  CONTRIBUTING  TO  EXCESSIVE 
COST  AND  INEFFICIENCY 

Not  only  are  boulevards  patrolled  by  the  city  police  both  day 
and  night  but  most  of  them  are  exceptionally  well  lighted  at  night. 
The  main  use  for  park  police  on  the  boulevards,  therefore,  is  to 
regulate  traffic,  especially  speeding  motor  vehicles.  It  has  been 
demonstrated  in  many  large  cities  that  police  assigned  to  this 
duty  should  be  equipped  with  motorcycles,  and  that  if  they  are 
so  equipped  fewer  men  are  necessary.  The  following  tabulation 
showing  the  policed  boulevard  mileage  in  each  of  the  three  park 
districts,  the  approximate  number  of  men  assigned  thereto,  and 
their  equipment,  indicates  clearly  that  sufficient  use  has  not  been 
made  of  motorcycles : 

Miles.        Men.     Motorcycles 

South     23  80  2 

West    25  40  10 

Lincoln    9^  14  2  (and  5  bicycles) 

A  Study  of  the  police  conditions  within  the  parks  indicates 
that  greater  efficiency  might  be  had  and  at  less  cost  by  also 
equipping  some  of  the  police  in  each  of  the  large  parks  with 
motorcycles.  These  machines  are  relatively  inexpensive  in  first 
cost,  and  those  used  by  the  city  police  department  showed  an 
average  cost  of  only  $8.50  per  month  for  operation  and  main- 
tenance during  1910.    In  speaking  of  the  work  of  the  motorcycle 


The  Park  Governments  of  Chicago  113 

squad  during  1910,  the  general  superintendent  of  city  police,  in 
his  annual  report  for  that  year,  says : 

"The  work  of  men  on  the  motorcycles  has  proven  satisfactory.  The 
motorcycle  men  have  been  employed  to  arrest  scorchers — for  the  purpose 
of  regulating  traffic,  arresting  peddlers,  and  others  violating  the  city 
ordinances  in  regard  to  vehicle  traffic  in  general.  In  addition  to  this 
work,  many  arrests  for  crime  have  been  effected  by  men  of  this  squad." 

The  Lincoln  Park  system  is  the  only  one  of  the  three 
equipped  with  a  police  telephone  system.  Although  the  captain, 
lieutenant,  and  sergeant  make  rounds  to  see  if  patrolmen  are 
on  duty,  the  latter  also  report  every  hour  by  telephone  to  the 
central  switchboard  operator  who  records  their  reports  on  a 
time  sheet. 

The  South  Park  district  is  not  equipped  with  pull  boxes, 
nor  are  the  patrolmen  required  to  report  for  a  roll  call.  They 
go  on  duty  direct  from  their  homes,  and  are  not  even  required 
to  arrive  at  or  leave  their  beats  at  any  designated  places.  The 
captain,  lieutenants,  and  sergeants  are  supposed  to  visit  the  sev- 
eral beats  to  see  if  the  patrolmen  are  actually  there,  but  other 
than  this,  there  is  no  check  as  to  when  they  arrive  or  depart. 
Transfers  are  rarely  made,  most  of  the  patrolmen  having  traveled 
the  same  beats  during  their  entire  service. 

The  West  Chicago  Park  district  is  not  equipped  with  pull 
boxes,  but  patrolmen  assemble  at  the  offices  in  Humboldt,  Gar- 
field, Douglas,  and  Union  Parks  before  going  on  duty  and  a  roll 
call  is  had.  This  occurs  at  7  a.  m.,  12  noon,  6  p.  m.,  and  10  p.  m. 
While  a  roll  call  is  much  better  than  no  roll  call,  it  does  not 
serve  as  any  check  on  the  men  during  interims  thereof,  nor  can 
commanding  officers  on  their  rounds  supply  the  lack  of  pull 
boxes. 

Patrolmen  of  the  South  Park  Board  assigned  to  duty  in  the 
small  parks  which  contain  field  houses  work  independently  of 
the  field  house  directors,  which  fact  is  not  conducive  to  the  best 
results.  It  is  suggested  that  the  men  assigned  to  field  houses  be 
instructed  to  obey  orders  of  the  directors  thereof.  This  method 
is  used  by  the  city  police  department  in  assigning  men. 

No  copies  of  the  police  handbook  of  rules  of  the  South  Park 
Board  have  been  available  since  the  Bureau  began  its  investiga- 


1 14  Chicago  Bureau  of  Public  Efficiency 

tion,  a  year  ago,  and  as  a  consequence  new  appointees  to  the  force 
have  not  been  supplied  therewith. 

II.    AUTOMOBILE  SERVICE 


SOUTH  PARK  COMMISSIONERS 
Original  Outlay. 

Automobiles  owned  by  the  South  Park  Commissioners  at 
the  close  of  the  fiscal  year  1910  represented  an  original  outlay  of 
$30,085,  as  follows : 

Make.  Cost.  Used  by.  Driven   by. 

Pierce-Arrow    .."j  |  Commissioners    Garage  Foreman. 

Pierce-Arrow    ..  ^  $15,000  (a)  -^  Gen'l    Superintendent.  .Chauffeur. 

Pierce-Arrow    ..J  I  Asst.  Gen'l  Supt Chauffeur. 

Locomobile    3,150  Captain   of   Police Chauffeur. 

Buick  1,815  Landscape  Gardener. ..  Self. 

Buick  1,815  Electrical    Engineer. ...  Self. 

Buick  1,815  Director  of  Playgr'nds.  Chauffeur. 

Buick  1,815  Engineer    Chauffeur. 

Columbia    Truck...  3,290  (b)    Mechanical    Depart. ..  .Mechanic. 

Buick  Truck 1,385  Trouble  Man  Elec.  Dept.  Self. 

Total   $30,085 

(a)  This  cost  includes  $14,000  cash  payment  and  $1,000  allowance 
on   five  old  machines. 

(b)  This  truck  was  made  in  the  shops  from  two  Columbias. 

The  Commissioners  also  own  a  large  motor  sprinkler,  which 
is  used  as  a  snowplow  in  winter. 

Maintenance  and  Operation. 

Although  automobile  expense  has  been  classified  on  the 
park  books  as  to  repairs  and  operation,  it  was  found  that  similar 
items  had  sometimes  been  charged  to  repairs  and  sometimes  to 
operation.  The  Bureau,  therefore,  made  an  analysis  of  the 
expense  for  the  five  years  ending  February  28,  1911,  and  reclassi- 
fied as  follows: 

1906 

Salaries   of   chauffeurs $4,163 

Salaries  of  repairers 2,664 

New  tires    3,769 

Tire  repairs    •. . .        827 

Gasoline  and  other  oils 2,089 

Other  materials  and  supplies...     4,083 

Rental  of   automobiles 

Total    $17,595    $12,575    $11,974    $13,787    $25,978 


I 


1907 

1908 

1909 

1910 

$  3,460 

$  3,686 

$  3,844 

$6,908 

1,743 

2,042 

2,906 

4,380 

3,010 

2,855 

2,841 

4,025 

586 

628 

889 

1,049 

2,286 

1,731 

1,885 

2,115 

1,490 

1,032 

1,422 

4,945 
2,556 

The  Park  Governments  of  Chicago  115 

It  should  be  noted  that,  while  the  above  classification  includes 
expenses  of  the  motor  truck,  it  does  not  include  expenses  of  the 
motor  sprinkler,  motor  grass-cutters,  or  motorcycles.  The  item 
of  $2,556  for  rental  during  1910  was  incurred  prior  to  the  pur- 
chase of  additional  machines  in  that  year.  The  fact  that  $1,810 
was  paid  during  1910  for  the  single  item  of  new  tires  on  the 
three  Pierce-Arrow  machines  is  an  indication  both  of  the  hard 
wear  to  which  the  machines  are  put  and  also  to  the  laxity  of  con- 
trol over  cost  of  upkeep.  The  average  of  $50  per  month  per  car 
is  excessive. 

In  arriving  at  costs  of  maintenance  and  operation,  the  prin- 
ciple is  firmly  established  in  the  administration  of  both  public  and 
private  business  that  an  annual  charge  should  be  included  for 
depreciation,  or  wear  and  tear,  on  plant  and  equipment.  In 
determining  the  rate  of  depreciation  on  automobiles  owned  by  the 
South  Park  Commissioners  February  28,  1911,  the  end  of  the 
period  reviewed,  consideration  has  been  given  to  their  period  of 
service  as  compared  with  the  average  life  of  automobiles,  and  also 
to  their  physical  condition.  An  endeavor  was  made  to  determine 
the  going  value,  or  probable  life,  of  the  machines  if  they  were 
continued  in  the  park  service.  The  rate  of  one  and  one-half 
per  cent,  per  month  is  believed  to  be  a  conservative  and  fair 
allowance  for  depreciation.  With  respect  to  machines  exchanged 
during  the  last  five  years,  the  difference  between  the  purchase 
price  and  the  allowance  in  exchange  has  been  considered  as  the 
amount  depreciated. 

The  estimated  amounts  chargeable  against  automobile  service 

for   depreciation   for   the   last   five   years,   when   added   to   the 

expenses  set  forth  on  the  park  records,  show  the  total  cost  of 

automobile  service  during  the  last  five  years  to  have  been  as 

follows : 

Expense  per 
Year.  Park  Records.  Depreciation.  Total  Cost. 

1906   $17,595  $2,876  $20,471 

1907  12,575  3,992  16.567 

1908  11,974  3,764  15.738 

1909  13,787  3,859  17,646 

1910  25,978  4,870  30,848 

Total    $81,909  $19,361  $101,270 


116  Chicago  Bureau  of  Public  Efficiency 

The  Bureau  suggests  that  the  South  Park  Board  dispose  of 
the  two  5-passenger  Pierce-Arrow  machines  assigned  to  the 
general  superintendent  and  assistant  general  superintendent.  The 
former  official  might  use  the  Great  Pierce-Arrow  car  kept  for 
the  use  of  the  Commissioners,  and  his  assistant  (general  foreman 
under  suggested  organization)  might  share  the  car  assigned  to 
the  chief  engineer.  Should  the  use  of  a  car  be  required  by  both 
officials  during  the  same  period,  an  extra  car  might  be  rented 
by  the  hour.  The  car  of  the  assistant  superintendent  cost  $1,958 
to  operate  during  1910.  Including  an  allowance  for  depreciation, 
it  cost  approximately  $2,798,  and  adding  chauffeur's  salary  the 
amount  was  $3,878.  At  $2.25  per  hour  (the  rate  paid  by  the 
city  government),  a  machine  might  have  been  rented  three  hours 
a  day  for  the  entire  365  days  for  only  $2,463.75.  In  practice, 
the  demand  for  renting  an  extra  car  would  probably  be  much 
less. 

It  is  suggested  that  all  chauffeurs  be  dropped  from  the  pay- 
roll, except  one  to  drive  the  Great  Pierce-Arrow  car  for  the  gen- 
eral superintendent  and  Commissioners,  and  that  all  other  officials 
should  themselves  drive  the  cars  assigned  to  them.  The  total 
annual  saving  to  the  South  Parks  would  approximate  $9,300. 
A  present  salvage  value  of  approximately  $4,600  should  also  be 
realized  on  the  two  cars  recommended  for  disposal. 

Service  Records. 

Since  1904,  statistical  records  of  automobile  service  have 
been  kept  in  considerable  detail.  Two  forms  of  report  were 
inaugurated  at  that  time :  one  to  be  made  out  daily  by  the  garage 
foreman  or  chauffeurs  for  each  machine,  and  the  other  to  be 
made  out  monthly,  giving  a  summary  of  the  same  information 
supplemented  by  the  cost.  The  daily  reports  provided  for  show- 
ing the  name  or  number  of  machine,  name  of  chauffeur,  mileage, 
for  whom  and  where,  quantity  of  gasoline,  oil,  and  carbide  used 
respectively,  number  and  size  of  outer  casings  and  inner  tubes 
placed  on  the  machine,  material  used  for  repairs,  and  time  of 
repair  man  and  of  washer.  They  were  sent  to  the  storeroom, 
where  the  monthly  reports  were  made  therefrom  and  the  costs 


The  Park  Governments  of  Chicago  117 

computed.  The  latter  were  then  sent  to  the  general  superintend- 
ent. An  examination  of  the  daily  reports  on  file  shows  that  one 
of  the  most  important  features  thereof  was  usually  ignored  by  the 
persons  making  them,  i.  e.,  information  as  to  who  used  the  auto- 
mobiles and  where  they  went.  A  valuable  check  on  the  necessity 
for  the  mileage  reported  was  thus  neglected.  The  mileage,  more- 
over, was  sometimes  entered  in  to  to  at  the  end  of  the  month  and 
prorated  by  days.  Reports  of  this  kind  have  no  value.  The  total 
costs  shown  on  the  monthly  reports  were  not  balanced  with  the 
monthly  automobile  costs  on  the  general  books,  as  is  necessary  to 
insure  accuracy.  Finally,  there  is  no  evidence  that  any  use  was 
made  of  the  statistics  thus  afforded  to  keep  down  or  reduce  the 
costs  of  automobile  service.  New  forms  for  securing  and  com- 
piling this  data  were  installed  June  1,  1911,  as  a  part  of  the  new 
accounting  system.  They  are  an  improvement  on  the  former 
records  and  seem  adequate  in  every  way. 

WEST  CHICAGO  PARK  COMMISSIONERS 
Original  Outlay. 

Although  eleven  automobiles  have  been  purchased  by  the 
West  Chicago  Park  Commissioners  during  the  last  five  years, 
four  of  them  have  been  exchanged  at  different  dates  in  part  pay- 
ment for  new  machines.  The  seven  owned  at  the  close  of  1910 
represented  an  original  outlay  of  $12,270,  as  follows : 

Make.  Cost.  Used  by.  Driven  by. 

Cadillac     $1,685  Superintendent   Self. 

Ford    815(a)  Boulevard   Foreman. .  ..Self. 

Oldsmobile     3,150  (a)  Commissioners    Chauffeur. 

Oldsmobile     3,150  (a)  Commiss'ers  and  Sec. 

Oldsmobile     1,320  (a)  Secretary  Chauffeur. 

Ford    900  Captain  of  Police Self. 

Buick  Truck 1,250  Master   Mechanic Self. 


Total   $12,270 

(a)      These  costs  include  cash  payment  and  salvage  allowance  on  old 

machines. 

Maintenance  and  Operation. 

The  park  records  show  an  operation  and  maintenance 
expense  for  1910  of  only  $11,082.  The  Bureau  discovered  that 
this  amount  does  not  include  $978  of  salaries  of  chauffeurs  car- 


1 18  Chicago  Bureau  of  Public  Efficiency 

ried  on  the  engineering  and  administration  pay  rolls,  instead  of  on 
the  garage  payrolls,  where  they  belong.  Neither  do  the  park 
figures  include  an  amount  of  $2,441  paid  for  supplies  and  repairs 
from  a  contingent  fund.  When  these  amounts  are  added,  the 
expense  appears  as  $14,501.  No  depreciation  was  included 
therein  for  1910  or  any  other  year.  A  cursory  examination  in- 
dicates that  the  expense  shown  for  the  preceding  years  is  also 
incomplete  in  instances  similar  to  that  noted  for  1910,  but  the 
Bureau  did  not  check  out  the  errors  except  for  the  year  1910.  The 
cost  of  new  tires  on  the  two  Oldsmobiles  during  1910  was  $1,702 
or  an  average  of  approximately  $70  per  car  per  month.  This  cost 
is  exclusive  of  all  tire  repairs.  There  has  been  no  central  control 
over  the  condemnation  of  old  or  purchase  of  new  tires.  The 
Bureau  checked  the  records  of  all  tires  purchased  and  sold  from 
June  1,  1906,  to  April  1,  1911.  Of  those  purchased  79  were  not 
on  hand  April  1,  nor  did  the  records  show  that  they  had  been 
sold.  Under  such  a  lack  of  system  it  would  be  an  easy  matter 
for  men  in  the  garage  to  sell  tires  newly  purchased  and  make  no 
record  of  the  transaction. 

In  computing  the  amount  of  depreciation,  the  rate  of  one  and 
one-half  per  cent,  per  month  has  been  applied  by  the  Bureau  on 
all  machines  owned  at  the  close  of  the  year  1910,  as  on  the  South 
Park  machines.  It  is  believed  to  be  a  fair  rate,  even  though  some 
of  the  West  Park  machines  have  been  repaired  more  extensively 
than  those  of  the  other  commissions.  Depreciation  on  the  four 
machines  which  were  purchased  and  sold  within  the  last  five 
years,  however,  has  been  considered  to  be  the  difference  between 
the  purchase  and  exchange  prices,  prorated  over  the  number  of 
months  owned.  These  amounts,  when  added  to  the  automobile 
expense  set  forth  on  the  park  records,  show  the  '.otal  cost  of  the 
West  Park  automobile  service  to  have  been  as  follows : 

Expense  per 
Year.  Park  Records.  Depreciation.  Total  Cost. 

1906  $1,823  $386  $2,209 

1907  1,879  821  2,700 

1908  4,239  1,377  5,616 

1909  5,743  1,688  7,431 

1910  14,501  1,983  16,484 

Total  $28,185  $6,255  $34,440 


The  Park  Governments  of  Chicago  119 

The  Bureau  suggests  that  the  West  Park  Board  dispose  of 
four  of  their  automobiles,  viz.,  the  Ford  assigned  to  the  boule- 
vard foreman,  and  the  5-passenger  and  two  7-passenger  Olds- 
mobiles  assigned  to  the  secretary  and  to  the  Commissioners.  The 
boulevard  foreman  might  use  a  motorcycle  or  bicycle.  Under 
the  suggested  reorganization  of  the  executive  staff,  the  secretary 
should  have  no  use  for  an  automobile.*  An  extra  car  might  be 
rented  for  use  of  the  Commissioners  as  became  necessary.  With 
the  number  of  cars  reduced  to  three  (including  truck),  the 
garage  pay-roll  might  also  be  reduced  to  one  machinist  and  one 
washer  and  polisher.  Aside  from  a  present  salvage  value  of 
approximately  $2,400,  the  annual  saving  thus  suggested  would 
amount  approximately  to  $9,900. 

Service  Records. 

No  information  is  available  to  show  when,  by  whom,  or  for 
what  purpose  any  of  the  West  Park  automobiles  were  used. 
There  are  no  records  of  mileage  or  individual  machine  costs.  No 
steps  have  been  taken  toward  securing  either  a  unit  cost  account- 
ing or  administrative  control  over  the  automobile  service. 

LINCOLN  PARK  COMMISSIONERS 
Original  Outlay. 

Six  automobiles  were  purchased  by  the  Lincoln  Park  Com- 
missioners during  the  five  years  ending  December  31,  1910,  five 
of  which  are  still  in  use  and  represent  an  original  outlay  of 
$8,355,  as  follows: 

Make.  Cost.  Used  by.  Driven  by. 

White   Steamer $2,745  Commissioners    Garage   Manager. 

Carter   Car 1,350  (a)  Utility  car Sundry  persons. 

Cadillac     1,420  Secretary  and  Sup't. ..  .Chauffeur. 

Cadillac     1,420  General  foreman Self. 

Cadillac    1,420  Captain  of  police Self. 


Total   $8,355 

(a)  This  cost  includes  $1,000  cash  payment  and  $350  allowance  for  an 
old  machine. 


*In  September,   1911,  a  new  four  passenger  Cadillac  was  purchased 
for  the  secretary  at  a  cost  of  $2,100.    This  car  is  likewise  not  needed. 


120  Chicago  Bureau  of  Public  Efficiency 

Maintenance  and  Operation. 

Prior  to  1910,  automobile  expense  was  not  kept  separately, 
but,  together  with  other  expenses,  was  charged  to  a  miscellaneous 
operating  account.  Beginning  in  January,  1910,  a  separate 
"Garage  Account"  was  opened  in  the  ledger  and  a  separate  col- 
umn allotted  thereto  in  the  record  of  "vouchers  audited."  A 
more  comprehensive  review  seemed  desirable,  and  the  Bureau 
therefore  examined  and  tabulated  all  vouchers  for  charges  of  this 
character  during  the  past  five  years.  The  total  automobile  cost 
thus  determined  for  that  period  did  not,  however,  include  any  al- 
lowance for  depreciation,  but  it  has  been  computed  at  one  and  one- 
half  per  cent,  per  month,  except  that  depreciation  on  the  one 
machine  which  was  exchanged  is  considered  to  be  the  difference 
between  the  purchase  and  exchange  prices.  The  automobile  ex- 
pense tabulated  from  payment  vouchers,  together  with  the  esti- 
mated depreciation,  shows  the  total  cost  for  automobile  service 
during  the  last  five  years  to  have  been  as  follows  : 

Expense  per  Total 

Year.  Park  Records.     Depreciation.         Cost. 

1906    $     309  $    174  $     483 

1907  2,361  660  3,021 

1908  3,622  737  4,359 

1909  3,991  1,248  5,239 

1910  8,066  1,503  9,569 


Total    $18,349  $4,322  $22,671 

The  Bureau  suggests  that  the  Lincoln  Park  Board  dispose 
of  the  5-passenger  White  Steamer  assigned  to  the  Commissioners 
and  the  2-passenger  Cadillac  used  by  the  general  foreman.  It 
would  be  equally  convenient  and  much  cheaper  to  rent  a  car  for 
use  of  the  Commissioners  when  necessary  than  to  retain  one  con- 
stantly in  service  for  their  use.  Since  the  promotion  of  the 
Assistant  Secretary  to  the  Secretary's  office,  he  has  continued  to 
use  the  2-passenger  Cadillac  formerly  operated  by  him  as  assist- 
ant. Aside  from  a  salvage  value  of  the  two  machines  of  approxi- 
mately $1,150,  the  annual  saving  suggested  on  maintenance  cost 
would  amount  approximately  to  $2,900. 


The  Park  Governments  of  Chicago  121 

Service  Records. 

No  records  of  automobile  service  were  kept  by  the  Lincoln 
Park  Commissioners  until  September,  1910,  although  they  had 
owned  and  operated  five  machines  for  considerably  over  a  year. 
A  form  of  monthly  report  was  introduced  at  that  time,  which, 
although  it  provides  for  showing  much  data  of  value,  omits  the 
important  matter  of  mileage,  and  also  for  whom  and  where  the 
automobiles  were  used.  The  total  monthly  costs  shown  on  these 
reports  have  not  been  balanced  with  the  automobile  expense 
shown  on  the  central  office  ledger. 

A  SPECIFIC  CASE  OF  WASTEFUL  METHODS 

In  September,  1909,  William  Holliday,  a  mechanic,  was 
employed  by  the  West  Park  Board  to  repair  automobiles.  He 
was  paid  70  cents  per  hour  for  his  services.  Beginning  with 
July  1,  1910,  with  one  exception,  he  was  paid  for  10  hours'  work 
(at  the  rate  of  70  cents  per  hour)  for  every  day,  all  Sundays  and 
holidays  included,  to  March  1,  1911.  The  only  exception  to  this 
payment  for  243  continuous  days  of  10  hours  each  was  that  his 
September  bill  was  rendered  and  paid  on  the  basis  of  29  days 
whereas  there  were  30  days  in  that  month.  The  omission  to  pay 
him  for  that  day  was  more  than  offset,  however,  by  paying  him 
for  10  hours'  services  on  each  of  four  nights,  two  in  September, 
1910,  and  one  each  in  January  and  February,  1911.  It  thus 
appears  that  on  four  occasions  Holliday  was  paid  to  repair  the 
West  Park  automobiles  30  hours  out  of  36  hours. 

The  bills  rendered  by  Holliday  were  written  on  letter  heads 
of  the  Park  Board  or  on  plain  pieces  of  paper.  They  were  paid 
at  once,  although  there  was  absolutely  no  proof  as  to  their  cor- 
rectness. Moreover,  at  Holliday's  request  the  following  interim 
payments  for  services  were  made  to  him  on  account: 

June,    1910    $180 

July,  1910  75 

August,   1910   100 

January,    1911    40 

$395 
Due    to    careless    bookkeeping,    no    deductions    for    these 
amounts  were  made  when  Holliday's  bills  were  paid  each  month 


122  Chicago  Bureau  of  Public  Efficiency 

or  at  any  time.  On  March  1,  1911,  Holliday  was  placed  on  the 
Park  Board  pay-rolls  as  a  regular  employee  at  the  rate  of  $4.50 
a  day.  The  Bureau  was  informed  by  employees  in  the  Board 
offices  that  the  reason  for  his  being  placed  on  the  rolls  was  to 
enable  the  Board  to  get  back  the  $395  over-payment  by  making 
deductions  from  his  salary  checks.  During  March,  however,  $75 
more  was  advanced  to  him  on  account  of  his  services.  In  April 
he  made  a  cash  refund  of  $75,  and  although  he  was  still  on  the 
pay-roll  September  1,  1911,  no  deductions  had  yet  been  made  from 
his  salary  checks.  The  fact  that  Holliday  did  make  repairs  on 
the  park  automobiles  is  not  disputed,  but  the  Bureau's  investi- 
gators several  times  endeavored  to  observe  him  at  work  at  the 
garage  and  were  informed  each  time  that  he  was  down  town 
buying  supplies.  The  foreman  of  the  mechanical  department 
admitted  that  he  was  rarely  able  to  find  this  mechanic  at  work 
and  exercised  no  control  over  him. 

Practically  all  of  the  automobile  parts  and  supplies  used  by 
Holliday  in  making  repairs  were  purchased  by  him  personally. 
Instead  of  buying  being  done  by  means  of  the  usual  requisition 
and  order,  it  was  his  custom  to  inform  the  assistant  secretary 
or  general  bookkeeper  that  certain  purchases  were  necessary  and 
would  cost  a  certain  amount.  Thereupon  at  the  order  of  the 
secretary,  the  amount  would  be  given  him  in  cash.  He  rarely 
turned  in  any  invoices  of  the  dealers  from  whom  he  had  made 
purchases.  When  it  was  necessary  to  obtain  the  signatures  of  the 
Auditor  and  other  Board  members  on  vouchers  for  reimburse- 
ment to  the  fund  from  which  the  cash  was  advanced,  the  vouch- 
ers were  often  supported  only  by  memoranda,  typewritten  on 
letter  heads  of  the  Park  Board  or  written  in  ink  or  pencil  on 
report  blanks,  small  pieces  of  blank  paper,  or  even  the  backs  of 
envelopes.  Although  there  was  an  entire  lack  of  evidence  as  to 
price,  quantity,  quality,  or  even  receipt  of  the  goods,  and  although 
the  appearance  of  the  documents  themselves  was  sufficient  to 
have  aroused  suspicion,  all  of  these  vouchers,  which  have  been 
presented  to  the  Board  officials,  have  nevertheless  been  signed 
by  them. 

On  September  1,  1911,  $9,212.52  had  been  paid  Holliday  in 


The  Park  Governments  of  Chicago  123 

cash.  Of  this  amount  $5,111-27  was  for  supplies  and  parts.  The 
reason  given  the  Bureau  representatives  for  allowing  him  to 
make  such  purchases  was  that  being  in  business  for  himself  as 
an  automobile  expert,  he  could  obtain  a  larger  discount  than  the 
Park  Board  could.  It  was  stated  that  an  arrangement  had  been 
made  with  Holliday  whereby  he  was  to  allow  the  Board  one-half 
the  discount  he  himself  received.  Through  the  courtesy  of  sev- 
eral automobile  dealers  from  whom  Holliday  purchased  supplies 
the  Bureau  has  examined  their  books.  So  far  as  it  was  possible 
from  the  meagre  description  of  articles  set  forth  on  the  docu- 
ments in  the  files  of  the  Park  Board,  the  prices  which  he  charged 
the  Board  have  been  checked  to  the  prices  actually  charged 
Holliday  by  the  dealers.  Many  instances  were  found  where  he 
obtained  20  per  cent,  discount  and  charged  the  Board  full  price. 
He  several  times  billed  the  Board  more  than  the  list  prices  in 
the  printed  catalogues  of  the  dealers.  In  fact  he  charged  the 
Board  $30  for  a  cylinder  which  an  auto  company  furnished  him 
free  of  charge. 

The  books  of  one  company  showed  that  on  several  occasions 
Holliday  had  subsequently  returned  his  purchases  unused.  These 
aggregated  $207.18.  He  had  been  given  checks  for  $185.34  and 
allowed  $21.84  credit  on  other  purchases.  The  park  records  show 
no  evidence  of  either  the  refunds  or  credits  on  purchases. 

The  transactions  of  the  West  Park  Board  with  Holliday 
during  the  two  years  of  his  employment  up  to  September  1,  1911, 
(the  date  the  Bureau  completed  the  inquiry),  amounted  to  over 
$9,000  and  afford  a  striking  example  of  waste  of  public  funds. 

III.    HORSE  SERVICE 


SOUTH  PARK  COMMISSIONERS 
Methods  of  Purchase  and  Sale. 

For  many  years  all  horses  required  in  the  parks  and  on  the 
boulevards  of  the  South  Park  system  have  been  purchased  by 
the  superintendent  of  stables,  upon  approval  by  the  Board  of 
his  requisitions.  With  the  exception  of  a  few  light  drivers  and 
police  mounts,  the  requirements  are  all  for  heavy  work  horses. 


124  Chicago  Bureau  of  Public  Efficiency 

Of  the  115  horses  owned  at  the  close  of  1910,  105  were 
bought  from  two  firms — 69  from  one  and  36  from  the  other.  All 
horses  sold  during  the  last  five  years  were  sold  at  auction  through 
one  of  these  same  two  firms.  The  prices  paid,  however,  appear 
to  compare  favorably  with  the  prevailing  market  prices.  During 
the  five-year  period  under  review,  they  ranged  from  an  average 
of  $220  in  1906  to  $269  in  1910.  That  good  horses  were  pur- 
chased would  appear  to  have  been  the  case,  as  the  records  show 
that  only  11  died  during  the  last  five  years,  and  they  had  been  in 
the  service  an  average  of  four  years ;  also,  from  the  fact  that  the 
75  horses  sold  during  that  period  had  been  in  the  park  service  an 
average  of  six  years,  and  sold  for  an  average  of  65  per  cent,  of 
their  original  cost.  The  11  horses  sold  in  1910,  however,  al- 
thought  they  had  been  in  the  park  service  an  equal  length  of  time, 
averaged  only  $107  each,  or  55  per  cent,  of  their  cost.  The 
horses  owned  December  31,  1910,  represented  an  original  invest- 
ment of  $24,625. 

Accounting  for  Horses. 

The  book  record  of  horses  owned  by  the  South  Park  Board 
dates  back  to  1871  and  gives  the  date,  price,  age,  weight,  iden- 
tification, and  the  vendor  of  horses  purchased,  also  the  date  and 
cause  of  death  or  sale,  the  price,  and  to  whom  sold. 

Foraging  of  Horses. 

Grain,  hay,  and  bedding  are  purchased  on  both  short-time 
contracts  and  the  open  market.  Shavings  instead  of  straw  are 
used  for  bedding,  at  a  considerable  saving  in  expense.  The  cost 
of  foraging  and  bedding  averaged  $143  per  horse  during  the 
year  1910. 

Management  of  Stables. 

The  superintendent  of  stables  has  a  force  of  12  stablemen, 
36  drivers,  and  a  foreman.  The  monthly  stable  expense  is  reduced 
to  a  cost  per  horse  hour,  prorated  over  the  different  operating 
accounts  on  the  basis  of  hours'  service  rendered  each  and  reported 
to  the  central  office. 


The  Park  Governments  of  Chicago  125 

Owing  to  the  varying  conditions  in  park  maintenance  be- 
tween the  summer  and  winter  seasons,  it  was  difficult  for  the 
Bureau  to  determine  the  number  of  horses  necessary  to  be  kept. 
It  is  the  pohcy  of  the  South  Park  management  to  own  sufficient 
horses  to  meet  the  demands  of  the  ordinary  summer  maintenance, 
hiring  teams  for  construction  and  other  extraordinary  work,  and 
during  the  winter  season  to  displace  the  hired  teams  with  their 
own  which  have  been  employed  in  the  cleaning  and  sprinkling 
service  during  the  summer.  Extra  horses  are  always  kept,  how- 
ever, to  alternate  with  those  in  service.  During  the  past  summer 
there  have  been  approximately  15  to  20  extra  horses  kept  on 
hand  for  this  purpose,  even  while  additional  horses  were  being 
hired  for  construction  work. 


WEST  CHICAGO  PARK  COMMISSIONERS 

Methods  of  Purchase  and  Sale. 

The  method  of  purchasing  horses  for  the  West  Park  Board 
is  similar  to  that  of  the  South  Park  Board,  purchases  being  made 
by  the  foreman  of  the  stables  upon  the  order  of  the  Board.  The 
horses  are  bought  on  thirty  days'  trial.  Purchases  have  apparently 
been  made  from  only  two  firms.  The  cost  of  the  19  horses  bought 
during  1910  averaged  $310  each.  In  March,  1910,  condemned 
horses  were  offered  to  the  highest  bidder  for  the  first  time,  12 
animals  realizing  an  average  of  approximately  $107.  Previously 
they  had  been  sold  at  private  sale  at  lower  prices.  Since  means 
of  identification  are  lacking,  it  is  impossible  to  determine  original 
costs  from  the  purchase  invoices  and  length  of  service  of  horses 
sold,  or  the  investment  in,  or  length  of  service  of,  the  71  horses 
owned  by  the  West  Park  Board  on  December  31,  1910. 

Accounting  for  Horses. 

Prior  to  October,  1909,  no  record  was  kept  of  the  purchase, 
sale,  or  death  of  horses,  nor  was  any  inventory  reported.  At 
that  time,  however,  a  horse  record  was  installed  similar  to  that 
in  use  at  the  South  Park  stables,  and  it  has  apparently  been 
accurately  kept  since. 


126  Chicago  Bureau  of  Public  Efficiency 

Foraging  of  Horses. 

All  purchases  of  feed  and  bedding  are  made  on  the  open 
market.  The  annual  cost  of  forage  and  bedding  per  horse  during 
1910  was  approximately  $183.  This  is  approximately  $40  per 
horse  more  than  the  cost  of  foraging  to  either  the  South  or  Lin- 
coln Park  Boards.  Only  part  of  the  hay  was  inspected  in  1910 
as  to  weight  and  quality  and  there  was  considerable  waste  in 
feeding. 

Management  of  Stables. 

The  foreman  of  the  West  Park  stables  has  a  force  of  14 
stablemen  and  36  drivers.  No  horses  are  kept  in  excess  of  those 
necessary  to  meet  the  ordinary  summer  demands. 

No  adequate  reports  of  horse  service  nor  of  inventories  have 
been  furnished,  however,  on  which  to  base  accurate  distributions 
of  the  cost  of  the  department. 


LINCOLN  PARK  COMMISSIONERS 

Methods  of  Purchase  and  Sale. 

The  foreman  of  stables  for  the  Lincoln  Park  Board  pur- 
chases all  horses.  The  average  price  paid  for  16  horses  bought 
during  1910  was  $273.  Purchases  have  been  made  from  several 
dealers  and  on  thirty  to  ninety  days'  trial.  Twenty-six  mules 
were  purchased  for  construction  work  on  the  extension  to  Lin- 
coln Park.  Horses  are  sold  at  private  sale.  The  13  horses  sold 
during  1909  and  1910  averaged  $183  each.  According  to  avail- 
able data,  however,  they  had  been  in  service  only  3^  years. 

Accounting  for  Horses. 

A  private  memorandum  made  by  the  present  foreman  is 
kept  at  the  stables.  There  is  no  record  in  the  central  office  of 
the  purchase,  sale  or  death  of  horses,  nor  is  there  anything  on 
the  books  representing  the  investment  in  the  62  horses  and  23 
mules  owned  by  the  Board  on  December  31,  1910. 


The  Park  Governments  of  Chicago  127 

Foraging  of  Horses. 

Practically  all  forage  and  bedding  are  bought  on  season  con- 
tracts.   The  average  cost  of  foraging  per  horse  was  $140  in  1910. 

Management  of  Stables. 

The  foreman  of  stables  has  a  force  of  11  stablemen  and 
17  drivers.  The  expense  of  the  stable  is  partly  distributed  to 
the  other  park  activities  by  charging  the  time  of  the  drivers  at 
an  arbitrary  rate  to  the  several  departments  served,  but  actual 
costs  are  not  determined.  It  appears  that  more  horses  are  main- 
tained than  is  necessary  to  meet  the  demands  of  the  park  service. 

IV.    REPAIR  SHOPS 


SOUTH  PARK  COMMISSIONERS 

Organization  and  Equipment. 

The  repair  shops  now  operated  by  the  South  Park  Board 
date  from  the  rebuilding  of  the  entire  central  plant  in  Washington 
Park  in  1908-9.  At  that  time  the  shops  were  enlarged  and  more 
fully  equipped,  approximately  $10,000  being  spent  for  machine 
tools  alone.  A  change  in  the  organization  was  made  in  Novem- 
ber, 1909,  and  again  in  April,  1911.  At  present  there  are  two 
co-ordinate  heads  of  the  shop  forces.  One,  known  as  the  elec- 
trical engineer,  has  charge  of  the  machine  shop,  steam  fitting, 
garage,  and  also  the  power  and  lighting  plant.  Another,  known 
as  the  master  mechanic,  has  charge  of  the  carpenter,  blacksmith, 
plumbing,  tin,  and  paint  shops.  Each  shop  is  under  the  direction 
of  a  foreman. 

At  the  close  of  the  fiscal  year  1910,  $138,592  was  shown  on 
the  books  as  the  cost  of  shop  buildings  and  equipment.  The  cost 
of  operation  during  1910,  as  shown  on  the  books,  was  approxi- 
mately $50,000.  No  inventory  of  shop  equipment  has  ever  been 
made,  so  far  as  the  records  show. 

Shop  Costs. 

On  work  done  in  the  shops  time  reports  are  collected  and 
time  distribution  is  made  to  the  operating  accounts  in  a  separate 


128  Chicago  Bureau  of  Public  Efficiency 

shop  office,  but  the  accounting  for  other  repair  work  as  well  as 
for  minor  construction  work  is  conducted  in  the  central  offices. 

Frequent  changes  have  been  made  in  the  methods  of  keep- 
ing shop  costs  since  the  enlarged  plant  was  established,  and  the 
accounts  are  still  in  an  unsatisfactory  condition.  Although  some 
new  construction  work  is  done,  such  as  the  manufacture  of  chairs, 
ornamental  concrete  work,  telephone  booths,  bird  houses,  etc.,  it 
is  largely  for  the  purpose  of  keeping  the  men  occupied  when 
repair  work  is  slack.  This  is  specially  true  during  the  winter 
season.     Most  of  the  shop  facilities  are  used  for  repairs. 

Work  orders,  instead  of  being  specific  and  definite  as  to 
detail,  are  usually  stated  in  brief  terms  of  a  general  nature.  Thus 
there  is  no  basis  for  subsequent  development  of  unit  costs  for 
purposes  of  comparison  with  similar  costs  previously  in  the  same 
shop,  in  other  park  shops,  or  in  commercial  shops.  The  fol- 
lowing charges  made  during  1910  against  standing  repair  orders 
are  examples  of  cost  accounts  supported  by  nothing  whatever  as 
to  the  character  of  work  done  or  number  of  units  repaired. 

Wagon  repairs    $2,417.68 

'  Tools  and  implements 1,285.42 

Sprinklers     4,879.83 

Steam   rollers    2,295.17 

As  an  illustration  of  new  work  orders  issued  during  1910, 
one  may  be  cited  which  reads,  "Make  signs,"  and  although  $2,700 
was  expended  thereon  no  information  is  available  as  to  even  the 
number  made.  Again,  where  specific  quantities  have  been  ordered 
from  the  shops,  the  shop  costs  have  often  been  confused  by  hold- 
ing the  work  orders  open  for  the  outside  labor  involved  in  setting 
up  or  installing.  Prior  to  December,  1910,  no  allowance  for  over- 
head expense  had  been  included  in  the  shop  costs.  New  account- 
ing forms  were  installed  at  that  time  which  in  this  and  other 
respects  are  an  improvement  on  former  methods. 

WEST  CHICAGO  PARK  COMMISSIONERS 

Organization  and  Equipment. 

The  mechanical  department  of  the  West  Park  Board  is  under 
the  direction    of    a    master    mechanic  and  comprises    machine, 


I 


The  Park  Governments  of  Chicago  129 

blacksmith,  plumbing,  carpenter,  tin,  and  paint  shops.  They  are 
located  in  Garfield  Park,  in  a  one-story  structure,  850  feet  long. 
Each  shop  is  under  the  direction  of  a  foreman.  The  cost  of  the 
building  is  not  distinguishable  in  the  accounts.  The  hand  and 
machine  tools  are  carried  at  $2,554.79.    No  inventory  is  recorded. 

Shop  Costs. 

Although  the  shop  forces  are  engaged  on  both  new  work 
and  repairs,  and  the  former  becomes  an  asset  and  is  properly 
chargeable  to  construction,  while  the  latter  is  a  matter  of  main- 
tenance, there  is  such  lack  of  adequate  cost  keeping  that  one 
cannot  be  distinguished  from  the  other  on  the  books.  In  fact, 
the  shop  accounting  is  so  defective  that  the  elements  of  labor  and 
material  are  not  assembled  on  the  books  so  as  to  show  even  the 
total  cost  of  shop  operation  during  any  month  or  year.  Several 
accounting  forms  are  provided  for  obtaining  costs,  but  some  are 
not  used  as  intended,  and  even  if  they  were  do  not  lend  them- 
selves well  to  scientific  costing.  It  is  practically  impossible  to 
determine  any  unit  costs  of  past  work  from  existing  records. 
Instead  of  being  based  on  definite  job  orders  and  specifications, 
much  of  the  work  is  started  on  verbal  orders  from  the  master 
mechanic  as  a  result  of  verbal  requests  to  him  from  those  in 
charge  of  different  park  activities.  No  individual  time  reports 
are  used ;  the  time  of  the  entire  force  being  reported  by  the  mas- 
ter mechanic,  who  has  no  clerk  and  whose  duties  take  him  often 
from  the  shops.  Finding  some  swinging  seats  being  made  in  the 
carpenter  shop,  and  quantities  of  bronze  bushings  for  motorcycles 
being  made  in  the  machine  shop,  the  Bureau's  accountants 
attempted  to  determine  the  costs  thereof,  but  no  record  of  such 
work  being  done  appeared  on  the  reports,  except  that  in  the  latter 
case  the  machinists  were  reported  as  working  on  "motorcycles." 

LINCOLN  PARK  COMMISSIONERS 

Organization  and  Equipment. 

The  mechanical  department  of  the  Lincoln  Park  Board, 
although  under  the  single  management  of  a  master  mechanic,  is 
housed  in  two  separate  buildings,  neither  of  which  is  well  adapted 


130  Chicago  Bureau  of  Public  Efficiency 

to  the  purpose.  The  carpenter,  blacksmith,  tin,  and  plumbing 
shops  are  located  in  the  basement  of  the  nursery  propagating 
house.  Although  the  general  storeroom  is  located  in  this  base- 
ment, the  mechanical  department  maintains  a  separate  storeroom, 
which  is  also  located  there.  The  cement  shop  and  paint  shop  are 
in  the  basement  of  the  stables.  Each  shop  is  under  the  supervi- 
sion of  a  foreman.  The  last  inventory  recorded  shows  an  equip- 
ment value  of  $3,659.  The  cost  of  operation  during  1910,  as 
shown  on  the  books,  was  $19,209. 

Shop  Costs, 

Shop  orders  received  and  subsequent  reports  relating  thereto 
are  so  indefinite  that  they  form  no  basis  for  determining  unit 
costs.  The  job  order  plan  is  used  for  determining  the  cost  of 
work  specifically  ordered  and  done  for  other  departments  of  the 
park  organization  and  the  cost  thus  determined  is  billed  and 
charged  to  them  except  that  no  overhead  charge  is  included 
therein.  The  job  order  plan  is  not  used  on  general  and  miscel- 
laneous shop  work.  Time  lost  and  time  and  material  devoted  to 
work  of  the  latter  character  which  are  not  chargeable  to  any 
other  department  are  allowed  to  accumulate  until  the  end  of 
the  year,  when  they  are  charged  off.  Several  hundred  orna- 
mental lamp  posts  were  recently  made  in  the  cement  shop,  and 
as  a  test  of  the  accuracy  of  cost  keeping  the  Bureau  endeavored 
to  ascertain  the  actual  costs  thereof,  but  found  that  the  values 
of  time  and  material  spent  thereon  could  not  be  allocated  to 
any  definite  number  of  posts  made.  No  actual  unit  costs  were 
kept  but  all  were  charged  at  a  uniform  predetermined  rate. 
New  accounting  forms  for  shop  use  were  recently  installed, 
but  the  system  is  yet  inadequate. 

V.    LAUNDRIES 


SOUTH  PARK  COMMISSIONERS 

All  laundry  work  incident  to  the  operation  of  the  South 
Parks,  including  the  laundering  of  bathing  suits,  towels,  refectory 
linen,  etc.,  is  done  in  laundries  operated  by  the  Board.     Five 


The  Park  Governments  of  Chicago  131 

plants  are  operated  during  the  summer  months,  namely — a  large 
plant  at  Ogden  Park  which  does  all  kinds  of  laundry  work,  and 
small  plants  at  McKinley  and  Bessemer  Parks  and  at  Davis  and 
Mark  White  Squares,  equipped  only  for  rough  work.  During  the 
winter  all  the  work  is  done  at  the  Ogden  Park  Laundry.  Ap- 
proximately 3,000,000  pieces  are  now  laundered  in  a  year.  Only 
one  book  account  has  been  maintained  at  the  central  office  with 
all  these  laundries  so  that  reliable  figures  are  not  available  as  to 
the  relative  economy  of  operating  each.  This  account  has  been 
charged  with  labor,  supplies,  stable  expense  for  deliveries,  and 
incidentals  and  credited  with  the  value  of  the  output  computed 
at  commercial  wholesale  prices,  but  has  not  been  charged  with  any 
expense  for  heat,  power,  administration  or  depreciation.  Inas- 
much, however,  as  the  account  during  the  last  five  years,  the 
period  reviewed,  shows  a  "profit"  each  year  of  approximately 
100  per  cent.,  the  including  of  the  omitted  charges  would  still 
leave  a  large  saving  as  a  result  of  operating  the  plants. 

Prior  to  1911  the  charge  for  this  service  computed,  as  noted 
above,  was  distributed  monthly  to  the  several  field  houses,  swim- 
ming pools,  refectories,  etc.,  for  which  the  service  was  rendered. 
This  year,  however,  these  amounts  have  been  reduced  to  per- 
centages which  were  then  applied  to  the  actual  monthly  costs  and 
the  resulting  amounts  distributed. 

WEST  CHICAGO  PARK  COMMISSIONERS 

Laundry  work  incident  to  the  operation  of  the  natatorium 
in  Douglas  Park  has  been  done  since  1906  in  the  natatorium 
building,  in  a  laundry  operated  by  the  Board.  No  separate  ac- 
counting has  been  maintained  with  this  laundry,  but  the  Bureau 
assembled  the  1910  expenses  thereof  and  offset  the  total  with  the 
value  of  the  output,  computed  at  the  same  prices  paid  the  com- 
mercial laundries,  and  the  result  showed  a  "profit"  of  200  per 
cent.,  or  a  saving  of  two-thirds.  This  plant  is  equipped  to  do  only 
rough  dry  work. 

The  laundering  necessary  in  connection  with  the  operation 
of  swimming  pools  in  Small  Parks  Nos.  1,  2  and  3  and  also  the 
lunch  rooms  has  been  done  by  outside  commercial  laundries.  There 


132  Chicago  Bureau  of  Public  Efficiency 

was  no  public  advertisement  soliciting  bids  for  this  outside  work, 
although  it  cost  $9,185  in  1910.  The  equipment  of  the  buildings 
in  these  parks  with  laundering  machines  is  prevented  by  the  fact 
that  sufficient  room  therefor  was  not  provided  at  the  time  of 
construction. 

LINCOLN  PARK  COMMISSIONERS 

Prior  to  1910  all  laundering  for  the  Lincoln  Park  Board  was 
done  by  commercial  laundries.  No  attempt  was  made  to  wash 
bathing  suits  at  the  children's  bathing  beach.  The  desirability  of 
so  doing,  however,  together  with  the  increased  amount  of  laun- 
dering necessary  by  reason  of  opening  the  bathing  beach  on  the 
park  extension  and  also  another  playground  led  the  Board  to 
erect  and  equip  a  plant  of  its  own,  and  it  began  to  operate  in 
June,  1910.  The  entire  cost  of  equipment  purchased  in  1910  was 
charged  against  that  year's  expense,  so  that  the  balance  of  the 
account  for  1910  could  not  be  expected  to  show  a  saving.  More- 
over, several  errors  are  apparent  in  the  account  and  the  reported 
loss  of  $1,083  is  therefore  incorrect.  The  expense  accounts  for 
1911,  although  $6,000  of  equipment  cost  has  been  buried  therein, 
are  being  proven  monthly  to  the  general  ledger,  and  at  the  end 
of  the  year  should  show  a  considerable  saving  as  a  result  of  estab- 
lishing the  plant.  A  motor  truck  has  been  purchased  this  year 
for  use  in  making  deliveries.  The  value  of  the  output  is  com- 
puted at  commercial  prices  and  the  amounts  distributed  to  the 
several  functions  served. 

SUMMARY  AND  CONCLUSIONS  OF  PART  THREE 


Police  Service. 

1.  Prior  to  July  1,  1911,  the  system  of  appointment  and 
dismissal  of  police  was  bad  in  each  of  the  three  large  park 
districts.  It  was  especially  bad  in  the  West  Parks.  It  is 
expected  that  effective  administration  of  the  Civil  Service 
Law,  in  effect  since  July  1,  will  remedy  these  defects. 

2.  The  cost  of  salaries  of  park  police  in  1910  was 
$321,225,  which  is  28.5  per  cent,  greater  than  in  1906,  five 


The  Park  Governments  of  Chicago  133 

years  previous.  The  increase  was  due  almost  entirely  to 
the  employment  of  additional  men.  Moreover,  the  number 
employed  at  the  beginning  of  1911  was  increased  18  per 
cent,  just  prior  to  July  1,  1911,  the  date  the  Civil  Service 
Law  went  into  effect. 

3.  Approximately  40  per  cent,  of  the  total  present 
force  of  the  three  Park  Boards  are  assigned  to  boulevard 
duty.  In  so  far  as  they  are  used  on  boulevards  for  any 
purpose  other  than  traffic  duty,  they  only  duplicate  the 
work  of  the  city  police,  as  the  latter  patrol  all  boulevards 
in  the  city,  both  day  and  night.  Most  of  the  traffic  regula- 
tion necessary  by  park  police  consists  in  regulating  the 
speed  of  motor  vehicles.  For  this  purpose  one  man  on  a 
motorcycle  is  worth  several  afoot,  and  yet  comparatively 
little  use  has  thus  far  been  made  of  motorcycles.  For 
example,  while  the  South  Park  Board  has  approximately 
80  men  on  the  boulevards,  only  two  are  equipped  with 
motorcycles.  The  West  Park  Board  has  purchased  10  of 
these  machines  but  has  made  no  reduction  in  the  pay-roll, 
as  might  have  been  done. 

4.  The  Bureau  believes  that  the  boulevard  force  of 
each  park  system  might  be  decreased  by  approximately 
one-half  if  most  of  those  remaining  were  equipped  with 
motorcycles.  This  would  enable  a  net  saving  to  be  made 
of  at  least  $60,000  per  year.  It  is  believed  that  this  saving 
might  be  materially  increased  by  reducing  the  number  of 
police  in  parks  and  using  more  motorcycles,  also  for  park 
policing.  The  Bureau  finds  nothing  to  show  the  necessity 
for  increasing  the  park  police  force  18  per  cent.,  as  was 
done  just  prior  to  July  1,  1911. 

5.  The  South  and  West  Parks  have  no  police  telephone 
systems.  In  the  former  there  are  not  even  roll  calls  nor 
are  patrolmen  required  to  arrive  at  or  leave  their  beats 
at  any  particular  places.  Morever,  no  rule  books  have 
been  available  for  over  a  year  to  new  members  of  the 
South  Park  force. 

6.  These  conditions  are  costly  and  are  not  conducive 


134  Chicago  Bureau  of  Public  Efficiency 

to  effective  police  service,  and  when  it  is  considered  that 
park  pohce  have  no  jurisdiction  beyond  the  confines  of 
their  respective  districts,  and  have  no  police  stations  in 
which  to  confine  their  prisoners,  consolidation  with  the  city 
police  department  through  a  consolidation  of  the  park  gov- 
ernments with  the  city  government  seems  the  logical  so- 
lution. Very  little  reorganization  would  be  necessary,  as 
in  most  instances  each  precinct  of  the  city  service  might 
care  for  the  parks  and  boulevards  included  therein. 

Automobile  Service. 

1.  Automobiles  owned  by  the  Park  Commissions  at 
the  close  of  the  fiscal  year  1910  represented  an  original 
cost  of  $50,710. 

2.  The  expense  of  maintenance  and  operation  of  auto- 
mobiles for  the  last  five  years,  including  an  allowance  for 
depreciation,  was  as  follows: 

1906  1907  1908  1909  1910 

South    $20,471  $16,567  $15,738  $17,646  $30,848 

West    2,209  2,700  5,616  7,431  16,484 

Lincoln  483  3,021  4,359  5,239  9,569 

Total    $23,163    $22,288    $25,713    $30,316    $56,901 

3.  Wherever  automobiles  are  purchased  and  main- 
tained at  public  expense,  there  is  a  tendency  to  use  them 
more  than  the  public  business  demands.  A  study  of  the 
situation  indicates  that  the  park  automobiles  in  Chicago 
are  no  exception  in  this  respect. 

4.  The  automobile  expense  of  the  city  government  of 
Chicago  became  so  excessive  that  all  city-owned  machines 
were  sold,  except  five  for  the  fire  and  police  departments 
and  Special  Park  Commission,  and  arrangements  were 
made  with  private  garages  to  rent  machines  as  needed. 
Automobile  service  has  since  been  obtained  by  all  city 
departments  on  requisition  through  the  city  purchasing 
agent.  The  total  cost  for  such  service  to  the  entire 
city  government  during  1910  was  only  $8,195,  which 
is    $48,706    less    than    the    cost    to    the    parks    during 


The  Park  Governments  of  Chicago  135 

the  same  period  of  owning  and  operating  their  own 
machines.  After  an  examination  of  conditions  under 
which  the  park  machines  are  used,  the  Bureau  beheves 
that  reductions  might  be  made  in  the  number  of  machines 
owned  and  in  the  number  of  chauffeurs  employed  by  the 
Park  Boards  so  that  a  present  salvage  value  of  approxi- 
mately $8,000  and  an  annual  saving  thereafter  of  approxi- 
mately $22,000  in  cost  of  operation  and  maintenance  might 
be  realized  without  impairing  in  any  degree  the  efficiency 
of  the  park  work.  If  additional  machines  were  subse- 
quently found  to  be  needed  from  time  to  time,  they  might 
be  requisitioned,  as  is  done  by  the  city,  under  a  low-bid 
contract  previously  let  to  a  private  garage. 

5.  The  purchase  of  the  three  Pierce  Arrow  machines 
(one  7-passenger  and  two  5-passenger)  by  the  South 
Park  Commissioners  and  two  7-passenger  machines  by 
the  West  Chicago  Park  Commissioners  is  an  indication  of 
extravagance  in  the  use  of  public  funds.  Covered  run- 
abouts or  coupe  cars,  such  as  some  of  the  officials  now 
use,  would  be  more  suitable  for  all,  would  require  less 
original  outlay  and  less  cost  of  upkeep.  It  is  recommended 
that  no  more  large  machines  be  purchased  but  that  they  be 
rented  by  the  hour,  if  required. 

6.  During  the  two  years  prior  to  September  1,  1911, 
the  West  Park  Board  paid  William  Holliday,  a  mechanic, 
over  $9,000  for  his  services  in  repairing  automobiles  and 
for  automobile  parts  and  supplies  purchased  by  him.  The 
transactions  with  him  show  gross  waste  of  funds  and  dis- 
regard of  the  most  common  business  principles. 

7.  To  regulate  the  automobile  service  in  the  parks,  it 
is  essential  that  there  be  not  only  an  accounting  control 
over  the  expense  thereof,  but  also  administrative  control 
over  the  use  of  the  machines.  The  economy  of  automobile 
service  is  usually  measured  by  the  cost  per  mile  of  miles 
run.  Although  it  is  important  that  such  data  be  made  a 
matter  of  current  record,  it  will  not  suffice  as  a  basis  to 
test  the  economy  of  machines  used  by  public  employees. 


136  Chicago  Bureau  of  Public  Efficiency 

Information  should  be  available  which  will  show  the  ne- 
cessity for  automobile  use.  No  service  records  whatever 
have  yet  been  required  by  the  West  Park  Board.  The 
South  Park  Board  Commissioners  have  kept  detailed  in- 
formation of  this  character  since  1904,  and  the  Lincoln 
Park  Commissioners  since  September,  1910,  although  these 
records  have  not  been  complete  nor  has  any  practical  use 
been  made  of  them.  If  similar  records  of  automobile 
service  were  kept  by  the  three  Boards,  reviewed  monthly 
by  each,  and  the  statistics  published  in  the  annual  reports, 
it  should  assist  materially  in  reducing  the  present  cost. 
The  South  Park  report  for  1910  made  no  mention  of  the 
$25,978  automobile  expense  of  that  year,  and  the  West 
Park  reports  designate  the  cost  only  in  toto  as  "Staples 
and  Transportation."  The  forms  for  securing  and  com- 
piling this  data  recently  installed  in  the  South  Park  sys- 
tem (June,  1911),  are  commended  for  adoption  by  the 
West  Chicago  and  Lincoln  Park  Boards.  Provision,  how- 
ever, for  the  item  of  monthly  depreciation  should  be 
added  thereto.  Attention  is  called  to  the  fact  that  any 
records  of  this  kind  are  of  value  only  when  used  as  a 
guide  for  administrative  judgment. 

8.  It  is  suggested  that  another  potent  aid  in  reducing 
automobile  expense  would  be  to  paint  all  machines  owned 
by  Park  Commissions  a  distinctive  color  and  to  paint  the 
name  of  the  commission  on  both  sides  of  each  machine 
in  conspicuous  letters.  The  machines  of  the  South  Park 
Commissioners  are  being  painted  in  this  way,  but  the 
lettering  is  so  small  as  to  defeat  in  a  large  measure  the 
purpose  thereof. 

9.  If  the  parks  were  all  under  the  control  of  the  city 
government,  three  machines  would  probably  be  ample — 
one  for  the  general  superintendent,  one  for  the  director 
of  playgrounds  and  fieldhouses,  and  one  for  the  chief 
landscape  gardener.  This  should  bring  the  annual  expense 
down  to  approximately  $10,300,  a  saving,  over  the  pres- 
ent amount,  of  $46,600. 


The  Park  Governments  of  Chicago  137 

Horse  Service. 

1.  At  the  close  of  the  year  1910  the  South,  West  and 
Lincoln  Park  Boards  owned  115,  71,  and  85  horses,  re- 
spectively. 

2.  For  many  years  all  horses  for  the  South  and  West 
Parks  have  been  purchased  from  only  two  firms.  Several 
firms  have  sold  to  the  Lincoln  Park  Board.  The  average 
prices  paid  per  horse  during  1910  by  the  three  Boards  re- 
spectively were  $269,  $310,  and  $273.  Considering  that 
the  same  kind  of  horses  are  used,  the  West  Parks  show  an 
excessive  cost  of  approximately  $40  per  horse. 

3.  Condemned  horses  have  been  sold  at  auction  by  the 
South  Parks  for  several  years,  but  the  West  Parks  sold 
at  private  sale  until  March,  1910,  and  the  Lincoln  Park 
horses  are  still  sold  at  private  sale.  Experience  shows 
that  better  prices  are  usually  obtained  at  auction,  and  this 
method  is  suggested  to  the  Lincoln  Park  Board. 

4.  A  detailed  history  record  of  all  horses  owned  by  the 
South  Parks  has  been  kept  since  1871.  No  such  record 
was  kept  of  West  Park  horses  until  October,  1909,  when  a 
history  book  was  introduced  similar  to  that  used  at  the 
South  Parks.  The  only  record  of  Lincoln  Park  horses  is 
a  private  memorandum  belonging  to  the  stable  foreman. 
As  a  guide  for  determining  the  economy  of  purchases  and 
sales  and  as  a  measure  of  protection  over  this  class  of 
park  property,  complete  horse  history  records  should  be 
maintained  in  the  central  office  of  each  Board,  the  postings 
thereto  being  made  from  reports  rendered  by  the  stable 
foreman. 

5.  Forage  for  the  South  Parks  has  in  recent  years  been 
purchased  both  on  short-time  contract  and  the  open  mar- 
ket ;  for  the  West  Parks  on  the  open  market ;  and  for  Lin- 
coln Park  on  season  contracts.  The  cost  of  forage  per 
horse  in  the  West  Parks  during  1910  was  $40  per  horse 
(over  25  per  cent)  higher  than  in  either  of  the  other  two 
systems.  As  the  Board  maintains  71  horses,  it  is  apparent 
that  $2,800  was  wasted  on  forage  in  that  year.    Owing  to 


138  Chicago  Bureau  of  Public  Efficiency 

the  frequent  fluctuations  in  price,  it  is  suggested  that  a 
saving  may  be  effected  in  all  three  park  systems  by  adopt- 
ing the  method  of  letting  short  term  contracts  on  uniform 
specifications.  Strict  inspection  is  necessary  to  insure 
proper  weight  and  quality.  The  inspection  of  deliveries 
to  the  West  Park  Board  was  inadequate.  Efficient  super- 
vision is  also  necessary  in  feeding. 

6.  The  West  Park  stables  have  had  a  larger  force  of 
men  to  care  for  71  horses  than  the  South  Parks  to  care 
for  115  or  the  Lincoln  Parks  to  care  for  85  horses.  It 
is  suggested  that  the  number  of  stablemen  at  the  West 
Parks  might  be  reduced  to  8  men  without  impairing  the 
service.  This  would  eflfect  a  further  saving  of  nearly 
$4,000  per  year. 

7.  A  study  of  the  horse  service  indicates  that  the  num- 
ber of  horses  maintained  by  the  West  Parks  more  nearly 
conforms  to  the  demands  than  the  number  of  horses  kept 
by  the  other  two  Boards  and  that  the  number  of  horses 
maintained  by  the  latter  might  profitably  be  reduced. 

8.  A  more  exact  distribution  of  the  cost  of  horse  ser- 
vice to  the  other  park  activities  is  made  at  the  South  Park 
than  at  either  of  the  others  and  is  recommended  for  adop- 
tion by  them. 

9.  Except  for  a  lack  of  attention  to  fire  prevention,  the 
stables  and  rolling-stock  of  all  three  of  the  systems  ap- 
pear to  be  kept  in  good  repair  and  the  horses  well  cared 
for. 

10.  During  the  winter  months  the  Park  Boards  have 
comparatively  little  need  for  horse  service  and  the  large 
expense  incurred  in  feeding  and  caring  for  the  horses  dur- 
ing that  period  is  largely  unproductive.  If  the  park  gov- 
ernments were  consolidated  with  the  city  government 
many  thousands  of  dollars  might  be  saved  the  tax  payers 
each  winter  by  using  these  surplus  horses  to  remove  snow 
from  streets  under  jurisdiction  of  the  city  and  also  to  re- 
move ashes. 


The  Park  Governments  of  Chicago  139 

Repair  Shops. 

1.  The  South  and  West  Park  Boards,  especially  the 
former,  are  equipped  with  shops  fully  adequate  to  meet 
the  demands  for  such  work  for  many  years.  Although 
there  is  undoubtedly  a  loss  of  efficiency  in  the  Lincoln 
Park  shops  by  reason  of  inadequate  and  scattered  floor 
space,  the  Board  is,  nevertheless,  to  be  commended  for 
utilizing  available  facilities  instead  of  incurring  a  large 
expenditure  for  the  construction  of  new  shops;  and  until 
the  question  of  park  consolidation  in  Chicago  is  settled,  it 
is  suggested  that  no  new  shops  be  erected. 

2.  It  is  suggested  that  if  all  mechanical  and  general 
repair  work  of  the  South  Park  Board  were  placed  under 
a  central  head,  a  better  co-ordination  of  work  and  greater 
efficiency  would  result. 

3.  At  what  point  it  ceases  to  be  economy  to  do  new 
work  or  make  repairs  in  park  shops  and  becomes  cheaper 
to  let  it  out  to  commercial  shops  cannot  be  determined  un- 
less adequate  production  costs  are  recorded  on  a  unit  basis 
from  year  to  year  on  the  output  of  the  park  shops.  In 
none  of  the  shops  of  the  three  Boards  have  such  costs 
been  kept. 

4.  If  the  several  park  governments  were  united  with  the 
city  government,  as  suggested  in  this  report,  both  park  and 
city  shops  might  then  be  consolidated  under  a  central 
management  and  a  large  annual  saving  effected  in  the  cost 
of  shop  operation  and  maintenance. 

Laundries. 

1.  The  South  Park  Board  has  saved  a  large  sum  of 
money  by  the  establishment  and  operation  of  laundries 
for  doing  all  its  own  work.  Whether  all  five  of  the  laun- 
dries are  on  a  paying  basis,  or  whether  the  work  should 
be  more  centralized,  as  is  done  in  winter,  cannot  be  deter- 
mined from  the  accounts  and  a  separate  accounting  with 
each  plant  is  therefore   suggested  henceforth. 


140 


Chicago  Bureau  of  Public  Efficiency 


2.  The  West  Park  Board  operates  one  laundry  for 
rough  work  but  pays  also  approximately  $9,000  annually 
to  commercial  firms  for  laundry  service.  There  has  been 
no  public  advertisement  soliciting  bids  thereon.  It  is 
suggested  that  the  extra  laundering  be  done  on  con- 
tracts after  competitive  bids  secured  by  public  adver- 
tisement. In  this  connection  the  Bureau  is  informed  that 
the  Manager  of  the  House  of  Correction  will  be  glad  to 
bid  on  this  work.  All  laundering  for  the  45  police  stations 
in  the  city  is  done  at  this  institution. 

3.  The  Lincoln  Park  laundry  (recently  erected)  ap- 
pears to  be  fully  equipped  and  with  economical  manage- 
ment should  secure  a  considerable  saving  in  laundry  ex- 
pense. It  is  suggested  that  only  the  actual  cost  of  service 
rendered  be  charged  against  the  functions  and  activities 
served,  as  is  now  done  in  South  Parks.  The  charging  by 
the  South  Park  Board  of  laundry  equipment  to  a  miscel- 
laneous park  equipment  account  and  failure  to  charge  any 
depreciation  to  operating  costs  and  the  charging  by  the 
Lincoln  Park  Board  of  all  laundry  equipment  to  the  op- 
erating costs  of  the  year  in  which  it  is  purchased  are 
equally  bad  accounting  practices. 


PART  FOUR 


I.    ELECTRIC  LIGHTING  AND  HEATING  PLANTS 


SOUTH  PARK  COMMISSIONERS 

The  South,  West  and  Lincoln  Park  Boards  are  now  operat- 
ing about  3100  arc  lamps  along  the  boulevards  and  in  the  parks. 
The  annual  operating  charge  is  about  $100,000.  The  number  of 
lamps  equals  25  per  cent,  of  those  now  in  use  by  the  City  of  Chi- 
cago and  will  equal  one-seventh  when  all  the  new  city  lights  are 
installed. 

During  1903,  1904  and  1905  ten  small  parks  widely  scattered 
over  the  South  Park  system  were  being  improved  and  buildings 
of  considerable  size  were  being  erected.  It  was  apparent  that 
more  electric  current  would  be  needed  for  lighting  these  addi- 
tional buildings  and  grounds  than  could  be  supplied  by  the  central 
power  plant  at  Washington  Park.  Consideration  was  therefore 
given  as  to  the  advisability  of  either  (1)  enlarging  the  central 
plant  and  distributing  power  from  this  to  the  various  small  parks, 
(2)  equipping  each  park  with  an  electric  lighting  unit,  or  (3) 
purchasing  power  for  the  small  parks. 

In  May,  1905,  upon  the  recommendation  of  a  committee  con- 
sisting of  the  president  and  another  member  of  the  Board  and 
the  general  superintendent,  a  contract  for  lighting  the  small 
parks   was   made   with   the   Commonwealth   Electric   Company. 

The  Trustees  of  the  Sanitary  District,  in  a  letter  to  the 
South  Park  Board  dated  February  14,  1906,  stated  that  elec- 
trical energy  would  be  delivered  to  the  city  limits  by  January 
1,  1907,  and  quoted  prices  per  horse  power,  on  a  basis  of  actual 
cost  of  production  and  distribution.  Since  the  plant  was  to  be 
operated  by  water  power,  it  was  probable  that  it  could  produce 
current  at  a  very  low  cost. 

Notwithstanding  the  early  prospect  of  purchasing  power 
from  a  municipally  owned  water-power  plant  at  a  cost  of  produc- 
tion which  should  be  much  lower  than  that  for  which  it  could  be 

141 


142  Chicago  Bureau  of  Public  Efficiency 

produced  by  any  steam  plant,  the  Park  Board,  disregarding  the 
alternative  of  enlarging  their  present  plant,  on  February  16,  1906, 
instructed  their  consulting  engineer  to  employ  an  architect  to 
draw  plans  for  an  entirely  new  central  power  plant. 

The  new  central  plant  which  was  erected  was  put  into  opera- 
tion January  31,  1908,  about  the  same  time  that  the  Sanitary  Dis- 
trict began  furnishing  power.  Wilkinson,  Reckett,  Williams  & 
Company,  certified  public  accountants,  in  a  report  submitted  to 
the  president  of  the  Park  Board,  April  20,  1909,  said  with  re- 
spect to  the  total  cost  of  the  new  plant,  transmission  lines,  and 
undistributed  material : 

"Of  this  amount,  $319,492.22  is  the  investment  that  would  not  have 
had  to  be  made  were  the  Commissioners  to  purchase  all  the  current  used 
over  the  South   Park  system." 

In  1908,  after  allowing  $8,091  for  salvage  on  old  machinery, 
the  old  plant,  valued  at  $99,562,  was  written  off  the  books. 

The  new  plant  supplies  heat  and  power  for  the  Washington 
Park  buildings  and  electric  current  for  the  entire  South  Park 
system,  except  Calumet,  Palmer  and  Grant  Parks.  The  cur- 
rent for  lighting  these  parks  is  still  purchased  from  the  Com- 
monwealth Edison  Company. 

The  operating  cost  of  the  Washington  Park  power  plant  for 
the  year  ending  November  30,  1910,  was  $31,913,  and  the  con- 
sumption of  electric  power  therefrom  was  about  2,100,000  kilo- 
watt hours.  The  cost  per  kilowatt  hour  was,  therefore,  $.01559. 
Published  reports  of  the  South  Park  Board  show  that  the 
old  plant  produced  power  at  practically  the  same  cost. 

Prices  on  power  were  quoted  from  time  to  time  by  the  of- 
ficials of  the  Sanitary  District,  but  no  positive  action  was  taken  by 
the  Park  Board  until  April,  1911,  when  a  five-year  contract  was 
concluded  for  electric  current  to  be  delivered  to  sub-stations  at  the 
various  parks  for  lighting  the  parks  and  boulevards.  The  price 
named  was  three-quarters  of  a  cent  per  kilowatt  hour  for  the  cur- 
rent, measured  on  the  secondary  side  of  the  transformers  in  the 
several  sub-stations.  The  South  Park  Board  agreed  to  maintain 
part  of  the  steam  plant,  which  is  to  be  operated  at  the  expense 
of  the  Sanitary  District  to  supply  current  for  emergencies. 

The  belated  decision  to  purchase  Sanitary  District  power  is 


The  Park  Governments  of  Chicago  143 

especially  interesting  by  reason  of  the  fact  that  so  late  as  May, 
1910,  two  additional  steam  turbines  were  purchased  for  the  new 
plant  at  a  cost,  including  installation,  of  approximately  $22,000, 
and  they  were  not  installed  until  1911. 

The  Washington  Park  power  house  will  soon  become  a  static 
station,  and  one  operator  to  the  watch  can  probably  take  care  of 
the  steam  plant  and  switchboard,  thus  reducing  the  present  force 
by  three  men  and  saving  about  $1,600  per  year.  One  sub-station 
will  take  care  of  most  of  the  load,  and  any  other  sub-station  it  is 
deemed  advisable  to  install  may  be  operated  by  the  local  steam 
engineer. 

A  retrospect  of  the  situation  shows : 

1.  That  the  Sanitary  District  was  ready  to  supply  power  to  the 
parks  at  about  the  same  time  that  the  Park  Board  completed  its 
new  central  plant ;  and 

2.  That,  until  such  time  as  Sanitary  District  power  might  be 
obtained,  if  the  Park  Board  had  continued  to  use  the  old  plant  for 
supplying  power  to  part  of  the  system  and  purchased  power  tem- 
porarily from  a  private  concern  for  the  other  part  of  the  system, 
most  of  the  cost  of  the  new  plant,  or  $319,000  might  have  been 
saved. 

WEST  CHICAGO  PARK  COMMISSIONERS 

The  West  Chicago  Park  Board  signed  a  contract  with  the 
Sanitary  District  on  August  24,  1906,  for  electric  current  for 
lighting  purposes.  The  parks  and  boulevards  west  of  Oakley 
Boulevard  are  lighted  under  this  agreement;  the  boulevards  east 
are  lighted  by  the  city.  The  contract  with  the  Sanitary  District 
was  for  a  term  of  fifteen  years,  and  the  price  agreed  upon  was 
$1.25  per  horse  power  per  month,  based  on  the  maximum  load 
during  the  month,  measured  on  the  recording  instruments  at  the 
Western  Avenue  sub-station.  Under  the  contract  also  the  West 
Park  Board  pays  five  per  cent,  per  annum  on  the  original  cost  of 
the  transmission  line  from  the  Western  Avenue  sub-station  of 
the  Sanitary  District  to  the  limits  of  Douglas,  Garfield  and  Hum- 
boldt Parks,  and  assumes  the  expense  of  repairs  and  maintenance. 

Prior  to  July,  1911,  arc  lamps  were  estimated  to  require 
nine-tenths  horse  power  each.  On  this  basis,  the  West  Park 
Board  used  2,308,666  kilowatt  hours  during  1910,  for  which  they 
paid  the  Sanitary  District  $13,939.73.  The  current,  therefore, 
cost  $.0064  per  kilowatt  hour.     During  July,   1911,  an  agree- 


144  Chicago  Bureau  of  Public  Efficiency 

ment  was  made  to  pay  for  the  arc  lamps  on  the  basis  of  eight- 
tenths  horse  power  per  lamp,  and  at  this  rate  cost  per  kilowatt 
hour  will  be  $.0060,  or  $.0015  per  kilowatt  hour  less  than  the 
South  Park  will  pay  on  the  flat  rate  for  which  they  insisted. 

There  are  three  sub-stations — one  each  at  Douglas,  Garfield 
and  Humboldt  Parks.  Each  station  requires  two  operators.  This 
arrangement  requires  the  use  of  four  extra  switchboard  opera- 
tors, at  an  annual  expense  of  $4,000.  With  all  circuits  leading 
out  from  Garfield  Park,  four  operators  at  an  annual  expense  of 
$4,000,  as  well  as  part  of  the  switchboard  investment  at  the 
other  two  parks,  might  have  been  eliminated.  To  eliminate  the 
two  sub-stations  now  would  involve  considerable  extra  expense 
for  copper.  This  annual  saving  of  $4,000  a  year  may  still  be 
effected,  however,  by  combining  the  duties  of  the  switchboard 
operators  at  Humboldt  and  Douglas  Parks  with  the  duties  of  fir- 
ing and  caring  for  the  steam  engines  at  those  places.  Such  an 
arrangement  would  eliminate  four  men.  Their  annual  salaries, 
aggregating  $4,000,  would  in  two  or  three  years  pay  for  the  new 
equipment  necessary. 

The  sub-station  at  Garfield  Park  should  have  been  placed 
in  proximity  to  the  boilers  and  in  a  fireproof  room.  There  is 
adequate  space  therefor,  li  this  had  been  done  and  coal  and  ash 
handling  apparatus  installed,  one  set  of  switchboard  operators 
each  watch  might  also  have  cared  for  the  steam  plant,  thus  saving 
$1,300  in  salaries  each  year. 

The  operating  expense  for  the  arc  lamps  during  1910,  with 
an  average  of  957^  lamps,  was  $32,097.18.  The  rate  per  lamp, 
therefore,  was  $33.52.  H  the  $4,000  above  noted  were  deducted, 
this  cost  could  be  reduced  to  about  $29.34  or  12^  per  cent,  per 
year. 

During  the  summer  season,  one  of  the  250-horse  power  hand- 
fired  boilers  at  Garfield  Park  is  used  to  supply  steam  for  agitat- 
ing the  road-oil  emulsion  in  a  nearby  tank.  The  superintendent 
states  that  within  another  year  this  emulsion  will  not  be  required ; 
otherwise,  it  would  be  more  economical  to  install  a  smaller  boiler 
to  supply  the  steam. 

The  same  number  of  coal  passers  is  employed  at  the  Garfield 


The  Park  Governments  of  Chicago  145 

Park  station,  with  the  operation  of  only  two  boilers,  as  was 
formerly  employed  for  four  boilers.  It  is  unnecessary  to  have 
a  coal  passer  and  a  fireman  on  each  watch.  The  services  of  three 
coal  passers  could  be  dispensed  with,  as  the  firemen  can  easily 
handle  the  coal.  In  the  winter  season  one  extra  man  might  be 
added.  A  saving  of  $1,260  per  year  may  readily  be  effected  by 
this  reduction  of  force. 

LINCOLN  PARK  COMMISSIONERS 

The  Lincoln  Park  Commissioners  on  April  27,  1908,  made  a 
fifteen-year  contract  with  the  Sanitary  District  for  electric  power. 
This  contract  calls  for  the  usual  municipal  rate  of  $1.25  per  horse 
power  per  month  for  12-hour  power  and  $2.20  per  horse  power 
per  month  for  24-hour  power.  An  average  of  the  three  highest 
15-minute  peaks  during  the  month  determines  the  horsepower. 
The  current  is  measured  at  the  Lincoln  Park  switchboard,  an 
allowance  being  made  on  the  recording  watt  meter  for  losses  from 
the  Western  Avenue  sub-station  to  the  switchboard.  In  addition, 
there  is  an  annual  charge  of  five  per  cent,  on  the  cost  of  install- 
ing the  transmission  line.  The  Park  Board  maintains  the  cir- 
cuit. 

At  present  there  are  approximately  844  electric  arc  lamps 
installed,  but  the  installation  has  been  so  rapid  and  irregular  that 
an  estimate  of  cost  per  lamp  per  year  is  difficult.  The  cost  of 
current  alone  should  be  approximately  the  same  as  that  of  the 
West  Park  Board.  The  operating  cost  would  be  less,  because 
the  circuits  all  radiate  from  one  sub-station. 

Since  the  electric  installation,  the  steam  power  plant  has 
been  disposed  of  and  the  steam  developed  now  is  used  for  the 
laundry,  heating  the  power  plant,  and  furnishing  steam  to  one 
small  vertical  engine  which  operates  a  lathe  and  two  other  small 
machines.  A  better  arrangement  would  be  to  install  a  small 
electric  motor  to  operate  these  machines.  Since  the  electric 
power  purchased  is  based  on  the  peak  load  which  occurs  at  night, 
the  cost  for  electric  motor  drive  would  be  practically  nothing. 

The  arrangement  of  the  boiler  plant  now  in  use  at  the  power 
house  is  very  awkward.    Two  boilers  are  located  in  the  coal  room, 


146  Chicago  Bureau  of  Public  Efficiency 

and  the  fireman  must  climb  over  coal  to  reach  the  second  boiler. 
A  third  boiler  is  in  the  machine  room. 

The  boiler  plant  at  the  propagating  houses  furnishes  heat  for 
the  propagating  houses,  conservatory,  and  zoo.  Small  boiler 
heating  plants  are  also  installed  in  the  stables  and  administration 
building. 

With  a  central  heating  plant,  properly  equipped,  a  very  con- 
siderable saving  could  be  made  by  purchasing  a  lower  grade  of 
coal.  In  addition,  the  services  of  three  firemen  could  be  dis- 
pensed with,  which  alone  would  efifect  a  saving  of  $1,620  per 
year;  other  economies  also  might  be  effected  by  the  use  of  a 
central,  well-arranged,  high-grade  boiler  plant. 

It  has  been  stated  by  the  park  officials  that  it  is  their  inten- 
tion to  install  such  a  plant  the  coming  year.  There  does  not  ap- 
pear to  be  any  necessity  for  a  new  building,  however.  The 
proper  arrangement  would  be  to  center  all  the  mechanical  equip- 
ment under  the  propagating  house,  and  center  all  power  and  heat 
developing  equipment  in  the  present  power  house.  Part  of  each 
kind  of  equipment  is  now  located  in  each  of  these  buildings. 

The  heating  plants  in  the  fieldhouses  are  equipped  with  fire- 
box locomotive  type  boilers.  High-grade  bituminous  coal  is  re- 
quired to  prevent  a  nuisance  from  smoke.  With  different  equip- 
ment, it  would  be  possible  to  reduce  the  expense  for  fuel  in  these 
buildings.  The  saving  would  not  justify  a  re-equipment,  but 
the  error  should  not  be  repeated  when  new  buildings  are  hereafter 
equipped. 

BOULEVARD  LAMPS 

New  lamps  have  recently  been  installed  on  Sheridan  Road 
and  the  downtown  portion  of  Michigan  Avenue  by  the  Lincoln 
and  South  Park  Boards  respectively.  Although  both  of  these 
thoroughfares  are  now  better  lighted  than  other  streets  in  Chi- 
cago, there  is  a  considerable  variance  between  the  two  as  to 
cost  and  style  of  lamps  and  posts,  and  the  degree  of  illumination 
and  cost  thereof.  Inasmuch  as  steps  will  undoubtedly  be  taken 
by  the  several  Park  Boards  to  secure  better  illumination  on  other 
boulevards,  a  table  is  here  included  showing  a  comparison  be- 
tween the  lighting  of  Sheridan  Road  and  Michigan  Avenue. 


The  Park  Governments  of  Chicago  147 

Sheridan  Rd.  Mich.  Ave. 

Type  of  Light {  Encbsed  |  ^'lOO^  wa^^^ 

I,  Tungsten. 

Mean  spherical  candle  power 200  400 

Watts    per    post 490  600 

Watts  per  C.  P 2.45  1.5 

Posts   per  mile 70  144 

Cost  of  posts  erected  per  mile  (with  fixtures) $4,515.00  $27,180.00 

Cost  of  light  at  %c  per  K.  W.  hr  per  mile  per  year. .    1,088.01  2,741.04 

Maintenance  per  mile  per  year 2,394.00  2,565.60 

Depreciation  at  3  per  cent  and  interest  on  investment 

at  4  per  cent. 316.05  1,902.60 

Total  cost  of  lighting  per  mile  per  year   (including 

interest    and    depreciation) 3,798.06  7,209.24 

The  above  figures  show  that  the  Hghting  of  Michigan  Avenue 
has  four  times  the  spherical  candle  power  and  costs  a  little  less 
than  twice  as  much  as  that  on  Sheridan  Road.  While  the  present 
illumination  on  Sheridan  Road  appears  adequate  for  any  boule- 
vard in  the  city,  the  additional  candle  power  of  the  Michigan  Ave- 
nue lamps  may  be  made  available  at  a  considerable  less  cost  than 
that  paid  by  the  South  Park  Board.  This  may  be  effected  by 
adopting  the  Michigan  Avenue  style  of  lamps  and  the  Sheridan 
Road  style  of  posts.  The  difference  between  the  two  kinds  of 
posts  used  relates  to  architectural  beauty  and  cost.  A  recent 
editorial  in  a  leading  daily  said : 

"The  most  graceful  and  the  most  durable  lamp  posts 
ever  erected  in  Chicago  are  the  concrete  posts  of  Lin- 
coln Park." 

The  posts  on  Michigan  Avenue  are  of  iron.  They  cost  $165 
each  and  the  Sheridan  Road  posts  only  approximately  $19.  The 
bronze  fixtures  on  the  latter  cost  $14.  If  concrete  posts  and  6-100 
watt  tungsten  lamps  were  used,  the  cost  of  the  bronze  fixtures 
would  be  more.  Allowing  $28  per  post  for  these  fixtures  and  a 
spacing  of  144  units  per  mile,  the  cost  would  be  approximately 
as  follows : 

Cost  of  posts  erected  per  mile  (with  bronze  fixtures) $9,180.00 

Depreciation  at  3  per  cent,  and  interest  at  4  per  cent 642.60 

Maintenance  per  mile  per  year 2,565.60 

Cost  of  current  at  %c  per  K.  W.  hr  per  mile  per  year 2,741.04 

Cost  of  lighting  per  mile  per  year  (including  interest  and  depre- 
ciation)      5,949.24 


148  Chicago  Bureau  of  Public  Efficiency 

Such  a  scheme  would  combine  the  best  features  of  both  plans 
and  at  less  cost. 


II.    LINCOLN  PARK  EXTENSION 

On  July  15,  1903,  the  town  of  Lake  View  voted  for  a 
million  dollar  bond  issue  to  defray  the  expense  of  enlarging 
the  area  of  Lincoln  Park  by  filling  in  the  lake  along  the  North 
Shore.  The  bonds  were  sold  in  1904  but  little  work  of  conse- 
quence was  done  until  1905.  Since  1905  the  progress  of  the  work 
has  been  such  that  the  original  bond  issue  was  entirely  expended 
by  the  end  of  1909.  Pending  the  authorization  by  the  legislature 
of  an  additional  bond  issue,  the  work  was  continued  with  money 
advanced  from  the  general  fund.  Having  obtained  the  neces- 
sary authority  from  the  legislature  additional  bonds  amount- 
ing to  $875,000  were  sold  in  1911.  Whether  the  total  sum  of 
$1,875,000  will  be  sufficient  to  complete  the  work  as  planned  is 
not  definitely  known. 

The  present  enlargement  of  the  park  contemplates  filling 
in  the  lake  for  a  width  of  about  1,200  feet  out  from  the  old  shore 
line  and  extending  from  the  foot  of  Fullerton  Avenue  to  Cor- 
nelia Street.  A  bathing  beach  and  pleasure  island  have  been 
planned  at  the  foot  of  Diversey  Boulevard  and  a  yacht  harbor 
of  fifty  acres  will  be  provided  north  of  Belmont  Avenue.  The 
area  which  has  been  filled  between  will  be  parked.  Changes 
have  been  made  in  the  original  plans  from  time  to  time  as  the 
work  progressed.  The  present  plans  provide  for  a  continuous 
inland  waterway  throughout  the  extension,  which  will  necessitate 
cutting  a  channel  from  Diversey  Boulevard  to  Belmont  Avenue 
through  land  which  has  been  filled.  This  will  of  course  involve 
considerable  additional  expense. 

The  total  area  of  the  Extension  will  be  approximately  197^^ 
acres,  and  will  require  over  3,000,000  cubic  yards  of  material  for 
filling  to  the  grade  desired.  In  addition  about  230,000  cubic 
yards  of  black  soil  will  be  used  to  cover  the  landed  area  a  foot 
in  depth.  The  construction  of  piers  and  breakwaters  has  con- 
sumed a  large  percentage  of  the  money  expended. 


The  Park  Governments  of  Chicago  149 

In  order  to  obtain  both  stone  and  black  soil  at  a  reason- 
able price  a  farm  of  107  acres  situated  two  miles  east  of  Le- 
mont,  Illinois,  along  the  Drainage  Canal,  was  purchased.  The 
soil  which  is  from  four  to  six  feet  deep  is  excavated  from  the 
farm.  The  rock  taken  from  the  canal  during  its  construction 
and  piled  on  its  banks  is  obtained  free. 

The  extent  of  the  operations  involved  in  this  park  exten- 
sion has  caused  the  development  of  a  very  complete  and  expen- 
sive handling  plant.  The  investment  in  plant  to  date  will  exceed 
$300,000,  of  which  sum  $174,240  has  been  expended  for  the 
dredge  Francis  T.  Simmons  and  appurtenances.  This  dredge 
operates  twenty-four  hours  per  day  with  two  shifts  of  men  and 
solid  material  is  deposited  at  a  cost  of  about  fourteen  cents  per 
cubic  yard,  for  material  measured  in  place,  as  shown  by  the 
reports  of  the  engineers  in  charge. 

Regarded  as  a  portion  only  of  the  anticipated  parkway  along 
the  North  Shore  to  the  city  limits,  the  investments  in  land  and 
operating  plant  have  been  well  made. 

III.    MARQUETTE  PARK 

Marquette  Park  is  located  in  the  southwestern  part  of  the 
city  between  67th  and  71st  streets  and  the  Grand  Trunk  Rail- 
road and  California  Avenue.  It  is  under  the  jurisdiction  of  the 
South  Park  Commissioners.  The  land  for  this  park  was  pur- 
chased by  the  Park  Board  in  1903  and  1904  at  a  cost  of  $267,- 
733.35. 

As  a  general  principle  the  purchase  for  park  purposes  of  land 
in  a  new  district  somewhat  in  advance  of  the  tide  of  population 
to  that  district  is  sound,  because  the  land  can  usually  be  obtained 
much  cheaper  then  than  later.  The  Bureau  contends,  however, 
that  the  land  having  been  purchased,  the  development  thereof 
as  a  park  should  wait  upon  the  population  and  the  accompanying 
demand  for  park  facilities.  The  South  Park  Board  did  not 
pursue  that  policy,  but  proceeded  at  once  with  the  development 
of  the  park.  The  records  show  that  during  the  fiscal  years  1904 
to  1910,  inclusive,  $305,943.57  was  expended  in  improvements,  as 
follows : 


ISO  Chicago  Bureau  of  Public  Efficiency 

1904    $39,963.24 

1905    39,318.87 

1906    93,295.11 

1907    68,296.70 

1908    49,759.18 

1909    9,618.17 

1910    5,692.30 

Total    $305,943.57 

It  should  be  noted  that  this  amount  is  exclusive  of  the  cost 
of  the  land.  The  purposes  for  which  the  expenditures  were 
made,  as  shown  by  the  records,  were  as  follows: 

Grading  and  filling  $71,258.72 

Water   supply   34,725.53 

Drainage    22,239.00 

Excavations     41,421.89 

Lagoons 31,021.41 

Black  earth    11,984.67 

Lawns    (seeding,    sodding,    etc.) 27,344.38 

Plantation     11,09293 

Walks    5,826.20 

Driveways    7,310.73 

Pavilions     6,685.81 

Buildings 246.60 

Bridge     1,117.21 

Landscape  architect    3,904.30 

Engineering  and   administration    27,936.54 

Miscellaneous    1,827.65 

Total    improvement    $305,943.57 

Approximately  $50,000  has  also  been  expended  at  this  park 
for  the  construction  of  propagating  houses.  The  Bureau  makes 
no  criticism  of  this  expenditure  but  the  fact  that  the  park  is  not 
yet  needed  and  will  probably  not  be  needed  for  some  time  indi- 
cates that  there  is  being  wasted  the  4%  interest  which  the  Park 
Board  is  paying  on  the  bonds  from  which  the  $305,943  was  de- 
rived. This  interest  now  amounts  to  over  $12,000  a  year  and 
totals  over  $50,000  since  1904.  Moreover  the  improved  part  of 
the  park  now  causes  a  current  expense  for  maintenance,  several 
men  being  employed  for  that  purpose. 

The  nearest  street  railway  route  to  the  park  leaves  prospec- 
tive visitors  still  one-half  mile  from  the  nearest  part  of  the  park. 
The  principal  route  is  via  the  Sixty-third  Street  line. 
Between  Sixty-third  street  and  the  park  none  of  the  streets  are 


The  Park  Governments  of  Chicago  151 

graded  and  there  are  no  sidewalks.  A  survey  made  by  the  Bureau 
in  September,  1911,  of  approximately  2x3^4  miles  of  territory 
wherein  the  park  is  near  the  center  showed  there  were  even  then 
only  approximately  1,000  houses  (5,000  people)  in  this  area  or 
within  ordinary  walking  distance  of  the  park.  There  are  no  flat 
buildings  in  the  neighborhood  and  all  the  houses  have  either  front 
or  back  yards  or  both.  There  are  many  vacant  lots,  and  when  the 
Bureau  inspectors  visited  the  district  more  children  were  play- 
ing in  the  vacant  lots  than  in  the  park. 

On  October  1,  1911,  about  ninety  dump  cars  and  thirty 
wheel  scrapers  were  in  the  park  exposed  to  the  damaging  effects 
of  the  weather.  The  last  time  they  were  u.sed  was  for  11  days 
in  the  spring  of  1909. 


IV.    SOUTH  PARK  ADMINISTRATION  BUILDING 


THE  OLD  BUILDING 

During  the  year  1897,  the  South  Park  Board  decided  to 
provide  a  building  in  Washington  Park  for  the  business  offices 
of  the  Board.  The  phaeton  cottage,  v/hich  stood  at  the  inter- 
section of  Oakwood  and  Drexel  Boulevards,  was  moved  to  the 
easterly  side  of  the  park  and  located  just  north  of  the  line  of 
ity-seventh  street  and  about  300  feet  west  of  Cottage  Grove 
Avenue.  The  additions  and  changes  which  were  made  in  the 
building  to  suit  the  purposes  of  the  Board  included  a  wing  of 
proper  dimensions  which  was  built  to  house  the  beautiful  interior 
furnishings  originally  in  the  German  commissioners'  room  of  the 
German  building  in  Jackson  Park.  This  finely  furnished  wing 
was  used  as  a  board  room  for  the  Park  Commissioners. 

The  building  as  finally  rearranged  had  a  floor  area  of  3,074 
square  feet.  The  location  seemed  entirely  practical,  as  it  was 
close  to  the  other  park  utilities,  the  shops,  conservatory,  propa- 
gating houses  and  power  plant.  It  was  also  a  very  artistic  struc- 
ture, so  that  with  the  aging  of  the  vine-clad  stone  it  fitted  in 
harmoniously   and   unobtrusively   with   the   park    surroundings. 


152  Chicago  Bureau  of  Public  Efficiency 

THE  NEW  BUILDING  PROJECT 

About  ten  years  after  the  erection  and  occupancy  of  this 
building,  some  members  of  the  Board  began  discussing  the  ad- 
visability of  providing  for  either  an  extension  to  the  old  building 
or  the  construction  of  a  new  administration  building.  The  out- 
side advice  secured  seems  to  have  consisted  (at  least  as  far  as 
the  records  of  the  Board  disclose)  of  a  report  by  the  architects, 
D.  H.  Burnham  &  Company,  which  reads  as  follows : 

"Chicago,  June  30,    1909 
"Mr.  Henry  G.  Foreman,  President  South  Park  Commissioners,  Chicago, 

"Illinois : 
"Dear  Sir: 

"Replying  to  your  inquiry  regarding  the  advisability  of  extending 
the  present  South  Park  Administration  Building  by  the  addition  of  wings 
sufficient  to  take  care  of  your  needs : 

"We  beg  to  advise  you  that  some  time  in  the  early  part  of  1908 
we  made  studies  for  such  a  building.  It  required  a  ground  area  of  14,- 
500  square  feet  to  give  you  approximately  the  required  amount  of  space 
for  the  offices  and  rooms,  and  we  estimate  the  cost  of  this  building  opera- 
tion to  be  $60,000.  The  total  ground  area  of  the  new  Administration 
Building,  by  reason  of  the  more  economical  layout  that  is  possible,  is  only 
12,560  square  feet. 

"We  strongly  recommend  the  erection  of  the  entire  new  building, 
for   the    following    reasons : 

"1.  The  total  area  of  the  old  Administration  Building  is  3,156  square 
feet,  or  20  per  cent,  of  the  total  area  of  the  project  when  complete.  This, 
however,  would  not  effect  a  saving  of  20  per  cent,  of  the  entire  cost,  for 
the  reason  that  very  little  of  the  old  building  could  be  saved.  It  would 
probably  not  average  more  than  8  per  cent,  or  10  per  cent,  of  the  entire 
cost  of  the  operation ;  in  fact,  we  think  $5,000  would  be  an  outside  figure 
for  the  actual  saving  in  using  this  old  building. 

"2.  By  starting  with  the  old  building,  it  would  be  impossible  to  make 
a   dignified    and    symetrical   composition. 

"3.     For  the  reason  that  the  old  building  is  not  rightly  situated, 

"4.  For  the  reason  that  the  old  building  can  be  occunied  without  dis- 
turbance until  the  new  building  is  completed  and  ready  to  be  moved 
into. 

"5.  The  plan  of  the  entire  new  building  is  very  much  more  con- 
venient and  straightforward  than  any  plan  could  be  made  extending  the 
old   building. 

"6.  The  new  building,  with  the  exception  of  the  roof,  is  of  fire- 
proof construction.  The  old  building  and  additions  would  be  non-fire- 
proof. If  the  additions  were  built  fireproof,  the  cost  would  exceed 
$60,000. 

"7.  Owing  to  its  proposed  location  on  a  terrace,  the  new  building 
has  a  large  area  in  the  basement  which  could  be  used  for  storage  pur- 
poses.    The  addition  to  the  old  building  is  figured  without  a  basement. 

"In  conclusion  we  would  say  that  the  old  building  is  not  suitably 
placed  in  regard  to  the  park  and  the  other  services,  nor  in  accordance 
with  good  precedent  established  in  other  places.     Such  a  building  is  al- 


The  Park  Governments  of  Chicago  153 

ways  designed  with  well-arranged  and  orderly  setting  and  approach, 
and,  where  possible,  combined  with  other  important  buildings  essential 
to  the  operation  of  the  parks  and  enjoyment  of  them  by  the  people  in 
as  beautiful  a  manner  as  possible. 

"This  building,  we  think,  should  not  front  on  the  stable  or  general 
services,  but  on  the  formal  garden  already  established  and  combine 
with  the  conservatory  and  any  future  building  of  similar  character  to 
make  an  harmonious  group,  concentrated  on  one  spot  in  the  park,  and 
thus  avoid  the  error  of  dotting  these  buildings  about  the  park  in  a  hetero- 
geneous manner. 

"We  beg  to  remind  you,  in  case  you  decide  to  proceed  with  the  new 
building,  that  the  proper  time  for  doing  the  best  grade  of  concrete  work 
is  getting  very  short  and  the  matter  should  be  decided  as  soon  as  possible. 
"Yours  very  truly, 

"D.    H.    BURNHAM   &   Co." 


"Chicago,  July  1.,  1909. 
"Henry  G.  Foreman,  President. 

"To  verify  our  estimate  of  $60,000  for  the  addition  to  the  old  Ad- 
ministration Building,  we  asked  Meiling  &  Walther,  general  contractors, 
to  make  an  estimate  on  the  plans,  and  they  estimate  the  addition  to  cost 
$55,000.  They,  however,  did  not  include  all  of  the  items  to  complete  the 
building,  so  you  will  see  from  this  that  our  estimate  of  $60,000  is  con- 
servative. D.  H.  BURNHAM  &  Co." 

An  examination  by  the  Bureau  of  the  files  of  the  South  Park 
Board  disclosed  three  sketch  plans  which  had  been  made  as  a 
basis  for  studies  for  a  reconstruction  of  the  old  administration 
building,  and  also  a  tentative  plan  for  a  new  building.  The  char- 
acter of  the  drawings  does  not  indicate  that  any  extended  study 
was  made  to  produce  a  plan  for  reconstruction  of  the  old  build- 
ing which  would  produce  an  harmonious  architectural  design.  It 
seems  more  apparent  that  the  wish  was  father  to  the  thought  and 
that  an  entire  new  building  was  favored  from  the  start  by  certain 
members  of  the  Board  and  their  advisors. 

NEW  BUILDING  ERECTED  AT  A  TOTAL  COST  OF  $173,418 

In  the  annual  report  for  the  year  ending  February  28,  1910, 

it  is  stated  (page  14)  : 

"After  securing  expert  advice  and  obtaining  estimates  on  the  cost  of 
reconstructing  the  old  building,  the  South  Park  Commissioners  decided 
the  economical  course  was  to  build  a  new  headquarters  of  substantial  and 
durable  construction  and  of  sufficient  size  to  take  care  of  imperatively 
needed  present  requirements  and  of  future  development." 

The  official  minutes  of  the  meeting  of  August  6,  1909,  (book 

13,  page  22)  describes  as  follows  the  letting  of  the  contract  for 

the  construction  of  a  new  building: 


154  Chicago  Bureau  of  Public  Efficiency 

"The  president  submitted  a  report,  dated  May  29,  1909,  on  which 
action  was  deferred  at  the  meeting  of  June  4,  1909,  said  report  containing 
the  proposals  received  for  the  Administration  Building,  and  recommended 
the  acceptance  of  the  bid  on  the  building  as  a  whole  made  by  William 
Grace  Company. 

"Report  was  adopted.  Commissioners  Best,  Hutchinson  and  Foreman 
voting  'yea'  and  Commissioner  Payne  voting  'nay.'  Commissioner  Payne 
requested  that  the  following  statement  by  him  be  recorded : 

"  'I  desire  to  go  on  record  as  protesting  against  the  erection  of  the 
Administration  Building,  for  which  bids  have  been  submitted,  for  the  rea- 
sons following: 

"  '1.  It  is  unwise  to  build  an  administration  building  so  important  as 
to  constitute  a  feature  of  the  park.  Any  administration  building  should 
be  subordinate  to  the  main  features  of  the  park. 

"  '2.  This  building,  together  with  the  preparation  of  the  grounds,  the 
reconstruction  of  the  same  including  the  reconstruction  of  the  propagating 
houses  made  necessary  by  the  building,  will  in  my  opinion  cost  $150,000, 
a  sum  much  too  large  for  a  mere  administration  building. 

"  '3.  In  my  opinion,  a  simple  brick  addition  to  the  present  building, 
extending  north,  may  be  made  to  meet  the  need  for  space  for  a  relatively 
small  sum. 

"  '4.  Until  the  present  demand  for  park  consolidation  is  settled,  no 
important  administration  building  in  the  South  Park  system  should  be 
built." 

The  bid  of  William  Grace  Company,  on  which  a  contract 
for  $95,750  was  awarded,  was  the  lowest  bid  received  for  do- 
ing all  of  the  work  in  the  construction  of  the  building.  The 
detail  of  the  bid  was  as  follows : 

Construction  of  building  as  per  specifications $88,000 

If  marble  is  used  in  the  entrance,  add 3,600 

If  marble  is  used  in  the  corridors,  add 750 

If  first  floor  is  reinforced  concrete,  add 2,600 

If  plate  glass  is  used  in  exterior  openings,  add 800 

Total    $95,750 

Subsequently  extras  were  added  which  brought  the  amount 
paid  the  William  Grace  Company  up  to  $100,969.04.  In  ad- 
dition to  this  cost,  expenditures  were  also  necessary  to  change 
the  condition  of  the  site  chosen  for  the  new  building.  These  are 
as  follows: 

Removal  of  old  propagating  houses,  lily  pond,  etc $    7,406.34 

Rebuilding  propagating  houses  at  present  site 6,430.02 

Grading,  filling,  planting,  decorative  effects,  etc 53,563.87 

Total    $  67,400.23 

Adding   cost  of  building  proper 100,969.04 

Adding  architects'  fees  of  5  per  cent,  on  building 5,048.45 

Grand  total   $173,417.72 


The  Park  Governments  of  Chicago  155 

HOW  $145,000  MIGHT  HAVE  BEEN  SAVED 

The  Bureau  made  a  careful  examination  of  the  old  building 
while  it  was  yet  in  use.  For  purposes  of  enlargement  it  was  sus- 
ceptible of  an  artistic  architectural  treatment.  A  study  thereof 
by  the  park  officials  might  have  revealed  the  possibilities  of  dupli- 
cating the  plan  of  the  building  on  the  north  of  the  old,  but  en 
reverse,  with  the  consequent  doubling  of  floor  space  at  a  mod- 
erate cost.  The  floor  area  of  the  old  building  was  3,074  square 
feet,  and  the  remodeled  building  proposed  would  have  had  a 
floor  area  of  6,481  square  feet. 

The  new  building,  as  constructed,  has  a  floor  area  of  10,134 
square  feet,  but  an  analysis  of  the  uses  to  which  all  this  space  is 
put  under  normal  working  conditions  indicates  an  excessive 
amount  of  space  used  for  architectural  treatment  only,  such  as 
hallways,  etc.,  and  for  unnecessary  rooms.  A  tabular  statement 
of  the  floor  area  of  the  various  rooms  of  the  old  and  new  build- 
ings, and  also  of  the  remodeled  plan  of  the  old  building  as  de- 
signed by  the  Bureau,  are  shown  on  page  157. 

Although  the  Board  consists  of  only  five  members,  the 
new  building  includes  a  board  room  containing  1,104  square  feet. 
It  is  equipped  with  opera  chairs,  and  originally  had  a  rostrum,  on 
which  was  a  long  semi-circular  desk  similar  to  those  of  the 
higher  courts.  Soon  after  the  building  was  completed  the  Board 
had  the  rostrum  and  desk  ripped  out.  As  a  regular  meeting  of 
the  Board  only  occurs  once  a  month,  it  would  seem  that  this  room 
might  have  been  used  also  as  an  office  for  the  head  of  a  depart- 
ment, as  in  the  old  building.  That  the  room  provided  for  use  of 
the  president  was  unnecessary  is  evidenced  by  the  fact  that  it  has 
been  turned  over  to  the  general  superintendent  by  the  present 
president  to  be  used  for  other  purposes.  The  drafting  room  in 
the  new  building  is  also  unnecessarily  large.  The  combination 
of  the  library,  stationery  and  file  room,  as  in  the  Bureau's  plan, 
would  have  required  the  services  of  but  one  attendant,  whereas 
two  are  now  employed. 

If  the  old  building  had  been  enlarged  as  proposed,  it  would 
have  demanded  only  a  simple  landscape  treatment.  There  would 
have  been  no  need  for  changing  the  location  of  the  propagating 


156  Chicago  Bureau  of  Public  Efficiency 

houses  or  lily  pond,  and  the  large  expense  for  grading,  filling 
and  decorative  efifects  would  have  been  eliminated.  The  re- 
modeled plan  of  the  old  building  designed  by  the  Bureau  has 
no  large  basement,  as  has  the  new  building,  because  it  is  super- 
fluous ;  nor  has  it  a  large  attic  space.  It  would  have  been  amply 
large  for  present  and  future  needs,  however,  and  since  the  kind 
of  material  and  style  of  construction  of  the  old  building  would 
have  been  extended  in  the  addition,  the  exterior  would  have 
made  a  handsome  building. 

The  estimate  made  by  the  Bureau  of  the  cost  for  the  re- 
modeling and  extension  of  the  old  building,  inclusive  of  fees  for 
designing  and  superintendence,  amounts  to  $28,407.55,  or  $145,- 
010.17  less  than  was  expended  on  the  new  building  and  decora- 
tive effects,  and  $77,609.94  less  than  the  cost  of  the  building 
alone.  In  order  to  confirm  the  correctness  of  this  estimate,  a 
construction  company  which  has  done  a  large  amount  of  high- 
class  building  work  in  Chicago  was  requested  to  estimate  the  cost 
of  the  proposed  building,  and  their  estimate  was  $24,000,  exclu- 
sive of  architect's  services.  After  adding  five  per  cent,  for  archi- 
tect's fees  the  total  cost  estimated  by  this  firm  amounted  to  $25,- 
200  or  $3,207.55  less  than  the  Bureau's  estimate. 

Even  if  the  government  of  the  South  Park  system  were  to  be 
continued  independently,  there  still  was  no  need  for  the  con- 
struction of  so  large  and  costly  an  adminstration  building,  es- 
pecially when  consideration  is  given  to  the  much  more  economical 
alternative  here  outlined.  Moreover,  it  must  be  conceded  that  for 
some  time  there  has  been  a  growing  sentiment  for  a  consoHda- 
tion  of  the  park  governments.  It  is  submitted,  therefore,  that 
in  the  face  of  such  a  sentiment  so  costly  a  structure  not  cen- 
trally located  and  not  well  adapted  to  other  purposes  was  gross 
extravagance. 

The  desirability  of  erecting  an  administration  building  for 
the  West  Park  Board  is  now  being  agitated.  The  Bureau  sug- 
gests that  no  more  buildings  of  this  character  be  erected  by  the 
Park  Boards  until  an  opportunity  has  been  afforded  for  consoli- 
dating the  park  systems,  because  buildings  erected  prior  to  such 
action  might  subsequently  prove  ill  adapted  in  location,  architec- 
ture, or  both. 


The  Park  Governments  of  Chicago  157 

STATEMENT    SHOWING    FLOOR    AREA    OF    NEW  AND    OLD 

ADMINISTRATION    BUILDINGS    AS    COMPARED  WITH 

THAT    OF    THE    OLD    BUILDING    REMODELED 

ACCORDING    TO    THE    BUREAU'S    PLAN. 

New             Old  Remodeled 

Building.     Building.  Building. 

Sq.  Ft.         Sq.  Ft.  Sq.  Ft. 

Entrance   and   information 875               ...  217(a) 

Corridors     882               293  644 

Vestibule    84 

Toilets,  washrooms  and  janitor 904               287  275 

Board  room   1,104               638  638 

President    348 

Committee     323 

Stenographer    100                 60  ...(b) 

Secretary     240                ...  172 

Superintendent  and  stenographer 390                224  390 

Assistant    superintendent     285                . . .  170 

Engineer    340                ...  170 

Drafting   room    1,056                594  693 

Engineer's  vault    ...  384 

Comptroller   and   bookkeepers 988               806  889 

Comptroller's   vault    364               148  302 

Athletic  director   260                ...  322 

Landscape   gardener    150               . . .  181 

Police  captain    182               ...  182 

Buyer    150                ...  181 

Telephone  operator   92                 24  56 

Library     510 

Stationery    ,. . . .    266                . . .  615 

File  room   241 

Total  square  feet 10,134            3,074  6,481 

Note  the  space  in  new  building  wasted  in  hallways  and   rooms   for 

the  Board,  President  and  Committees.     The  Board  consists  of  only  five 
members. 

(a)  Information  is  combined  with  comptroller  in  plan  of  remodeled 
building. 

(b)  No  separate  room  necessary. 


V.    INSURANCE  OF  PARK  STRUCTURES 

The  South  Park  Board  does  not  carry  underwriters'  poHcies 
on  any  of  the  property  under  its  control,  but  maintains  an  insur- 
ance reserve  fund  to  be  used  in  the  replacement  of  buildings  or 
contents  which  may  be  destroyed  by  fire.  This  reserve  fund  was 
established  in  May,  1903,  by  setting  aside  $1,366.02  of  interest 


158  Chicago  Bureau  of  Public  Efficiency 

money.  To  this  amount  there  has  since  been  added  interest  on 
bank  deposits  of  park  money  until  it  now  amounts  to  nearly 
$300,000.  This  fund  was  on  bank  deposit  at  3  per  cent,  interest 
from  May,  1903,  until  June,  1911,  when  $200,000  of  it  was  in- 
vested in  4  per  cent.  Sanitary  District  bonds. 

An  examination  of  values  of  the  South  Park  buildings  indi- 
cates that  $100,000  should  be  ample  to  maintain  as  a  reserve  for 
isolated  buildings  if  underwriters'  policies  were  carried  on  the 
group  of  buildings,  including  the  stables,  shops  and  power  plants, 
which  represent  a  burnable  risk  in  excess  of  $200,000.  If  the 
reserve  were  limited  to  $100,000,  the  interest  received  thereon 
would  more  than  suffice  to  meet  the  annual  premiums  on  the  un- 
derwriters' policies  which  might  be  carried  on  the  larger  property 
values,  a  large  proportion  of  the  risk  would  be  assumed  by  the 
underwriters  instead  of  by  the  Park  Board,  and  $200,000  of  the 
fund  might  be  used  for  other  purposes. 

In  order  to  determine  the  probability  of  destruction  of  the 
South  Park  properties  by  fire  and  the  measure  of  protection  ex- 
ercised against  such  a  contingency,  the  Bureau  caused  an  inspec- 
tion thereof  to  be  made  in  April,  1911,  by  the  insurance  inspector 
of  a  reputable  firm  of  fire  underwriters.  Their  report  is  included 
in  this  chapter. 

The  West  Park  Board  maintains  no  insurance  reserve  fund, 
but  carries  underwriters'  policies  to  the  amount  of  $563,220,  on 
which  an  annual  premium  of  $1,576  is  paid.  The  terms  of  the 
policies  are  all  five  years  except  that  on  automobiles  the  term  is 
one  year. 

The  Lincoln  Park  Board  likewise  maintains  no  insurance 
reserve  fund,  but  carries  policies  aggregating  $691,650,  on  which 
an  annual  premium  of  $5,837  is  paid.  Of  this  amount  $3,799.67 
is  paid  for  $125,000  insurance  on  the  dredge  used  in  the  park  ex- 
tension work. 

The  Bureau  did  not  secure  an  expert  inspection  of  the  West 
and  Lincoln  Park  properties  as  to  conditions  of  fire  prevention, 
but  the  advisability  of  the  respective  Park  Boards  taking  such 
action  is  suggested.  The  report  of  the  insurance  inspectors  on 
the  South  Park  buildings  follows : 


The  Park  Governments  of  Chicago  159 

New  Administration  Building,  Washington  Park. 

A  one-and-a-half-story  and  basement  building,  mainly  of  reinforced 
concrete  construction.  The  roofs,  however,  are  of  ordinary  timber  con- 
struction, being  tile-covered  wood  sheathing  on  wood  rafters.  The  ceil- 
ings of  the  first  floor  also  being  of  ordinary  wood  joists,  with  the  plas- 
tered metal  lathing  on  the  under  side,  there  is  formed  a  practically  con- 
tinuous blind  attic  under  the  peaked  roofs  of  timber  construction.  A  fire 
originating  in  this  attic  would  be  difficult  to  extinguish,  and  would  prob- 
ably result  not  only  in  much  damage  to  the  roofs,  but,  on  account  of  the 
great  quantity  of  water  used  by  the  fire  department,  in  considerable  dam- 
age to  furniture,  fixtures,  and  interior  finish. 

The  vaults  in  basement,  while  substantially  built  and  well  designed  to 
protect  the  contents  from  any  exterior  fire,  are  so  filled  with  wooden 
shelving,  racks,  and  furniture  that  an  almost  total  destruction  of  the 
contents  from  fire  could  occur. 

The  dry-powder  fire  extinguishers  which  are  distributed  throughout 
are  an  unreliable  fire-fighting  device,  practically  discredited  by  fire-insur- 
ance engineers. 

Recommendations. 

(1)  Fire  stops  of  tile  or  plastered  metal  lathing  on  steel  framing 
should  be  provided  at  various  points  in  the  attics,  so  as  to  at  least 
limit  the  area  of  any  attic  fire. 

(2)  All  wood  shelving  and  furniture  in  vaults  should  be  replaced 
by  metal. 

(3)  Remove  all  dry-powder  extinguishers  and  substitute  stand- 
ard three-gallon  chemical  fire  extinguishers. 

The  Stables,  Washington  Park. 

A  large-area  brick  building,  mainly  one  story  but  part  two  story,  the 
upper  floor  being  the  hay  loft.  A  four-foot  unused  basement  extends 
under  a  greater  part  of  the  building.  Interior  construction  is  of  ordinary 
joisted  type.  The  main  pavilion  roof  is  supported  by  radial  wood  trusses. 
The  building,  therefore,  on  account  of  the  large  area,  the  combustible 
class  of  construction,  and  a  highly  inflammable  upper  floor  occupancy, 
is  subject  to  practically  a  total  loss  in  the  event  of  a  serious  fire. 

The  fire-protection  equipment  here  is  extremely  scant.  The  building 
is  fairly  well  supplied  with  standpipes,  but  out  of  the  half-dozen  or  more 
hose  connections  only  two  or  three  are  supplied  with  hose,  improperly 
hung.  There  are  a  number  of  more  or  less  useless  dry-powder  extin- 
guishers distributed,  which  gives  a  misleading  feeling  of  there  being  fire- 
protection  available. 

Recommendations. 

(1)  All  hose  connections  should  be  supplied  with  at  least  100 
feet  of  2-inch  rubber-lined  canvas  hose,  properly  folded  on  a  well- 
made  rack. 

(2)  Dry-powder  extinguishers  should  be  replaced  by  standard 
three-gallon  chemical  fire  extinguishers. 

(3)  On  account  of  the  large  values  under  one  roof  and  the 
necessity  for  immediate  discovery  of  fire,  the  premises  should  be 
equipped  with  the  regular  A.  D.  T.  watch  service  system,  with  a 
night  man  making  hourly  rounds. 

(4)  "No  Smoking"  signs  should  be  posted  throughout  the 
building. 


160  Chicago  Bureau  of  Public  Efficiency 

The  Shops,  Washington  Park. 

These  shops,  which  include  the  garage,  storage  warerooms,  ice-cream 
factory,  and  general  repair  shops,  are  long,  one-story  brick  buildings,  of 
light-joisted  construction,  divided  into  various  departments  by  pine  parti- 
tions or  by  brick  walls  not  properly  carried  up  above  roofs. 

In  the  garage  are  violated  practically  all  rules  for  the  safeguarding 
of  the  only  too  well  known  hazards  due  to  storage  and  handling  of  used 
gasoline  automobiles.  The  building  itself,  with  its  wooden  roof  over  a 
blind  attic,  made  with  a  wood-sheathed  ceiling,  would  greatly  help  to 
make  a  small  starting  fire  a  serious  one.  The  use  of  wooden  locker  for 
clothing,  with  the  ever-present  chance  of  greasy  overalls  being  stored 
therein,  is  bad ;  the  arrangement  of  the  so-called  oil  room — a  small  brick- 
inclosed  room  without  a  ceiling,  thus  opening  direct  into  the  garage — is 
worse;  and  the  location  of  the  main  gasoline  supply  tank  of  500  gallons 
directly  under  the  oil  room,  filled  from  oil  wagons  driven  inside  the  garage, 
is  almost  without  a  parallel  as  a  hazardous  layout. 

The  use  of  stoves  in  many  of  the  shops,  particularly  in  the  boat- 
repair  shop,  with  steam  readily  available,  seems  to  be  an  introduction  of 
an  unnecessary  hazard.  There  is  also  a  carelessness  manifest  in  the 
machine  shops  and  electrical  repair  shops  regarding  the  use  of  nails  and 
other  metal  supports  for  extension  electric-light  cords.  These  cords,  by 
the  way,  are  the  ordinary  braided  cords  and  not  of  the  safest  type,  a 
well-insulated  cord  especially  designed  for  extension  and  pendant  use  in 
shops. 

There  is  unquestionably  a  conflagration  hazard  among  the  shops,  due 
to  the  length  of  the  buildings  without  true  fire  walls  and  the  mutual 
exposures ;  and,  as  the  occupancy  of  the  shops  includes  woodworking, 
painting,  blacksmithing,  and  metal  working,  even  with  the  best  of  care 
there  is  always  a  chance  of  fire  due  to  the  specific  hazard  of  the  processes. 

The  fire-protection  equipment  throughout  the  shops  is  entirely  inade- 
quate. The  yard  hydrants  are  provided  with  cheap,  unlined  I'nen  hose, 
an  unreliable  type  of  hose  for  outside  use,  and  there  is  a  lack  of  hand 
appliances  inside  the  shop  in  the  way  of  barrels  and  buckets  and  portable 
three-gallon  chemical  extinguishers. 

Recommendations. 
Garage. 

(1)  Smoking  inside  the  garage  should  be  absolutely  prohibited, 
and  signs  to  that  effect  posted. 

(2)  Metal  lockers  should  be  used  instead  of  the  wooden  lockers. 

(3)  A  properly  built  fireproof  oil  room,  well  ventilated  at  ceiling 
and  floor  level,  should  be  provided. 

(4)  The  main  gasoline  supply  tank  should  be  located  on  the 
outside  of  the  building,  underground,  and  otherwise  in  accordance 
with  the  city  ordinance. 

(5)  Several  three-gallon  chemical  fire  extinguishers  should  be 
installed,  as  well  as  a  number  of  pails  of  clean,  d  y  sand. 

Shops. 

(1)  "No  Smoking"  signs  should  be  posted  throughout. 

(2)  Heating  by  steam  should  be  installed  in  all  shops. 

(3)  All  braided  cord  used  for  electric-light  extensions  should 
be  replaced  by  standard  extension  cord,  and  the  use  of  nails  and 
metal  pipes  for  supporting  extension  cords  discontinued. 

(4)  A  full  supply  of  barrels  and  buckets  and  chemical  fire 
extinguishers  should  be  distributed. 


The  Park  Governments  of  Chicago  161 

(5)  Standard  City  Fire  Department  hose,  properly  housed  and 
supplied  with  nozzles,  spanners,  etc.,  should  be  provided  for  each 
yard  hydrant. 

(6)  A  regular  night  watch  service,  operating  on  the  A.  D.  T. 
system,  should  be  installed. 

The  New  Power  Plant,  Washington  Park. 

This  is  a  modern  fireproof  electric  power  plant,  with  but  little  chance 
of  damage  from  interior  fires,  but  rather  seriously  exposed  by  the  stables. 
The  large  brick  stack  is  also  subject  to  bad  lightning  damage.  This  plant 
is  almost  entirely  without  small  hand  fire  appliances. 

Recommendations. 

(1)  All  windows  exposed  by  stables  should  be  of  wire  glass. 

(2)  Sand  pails  and  chemical  extinguishers  should  be  installed 
in  engine  room. 

The  Old  Power  Plant,  Washington  Park. 

A  dilapidated  building,  now  used  for  storage  of  old  machinery,  odds 
and  ends  of  construction  material,  etc.  The  building  should  be  removed, 
as  it  is  of  little  value  and  unsuited  for  any  definite  use. 

The  German  Building,  Jackson  Park. 

A  brick  building,  equivalent  to  three  stories  in  height,  but  mainly  one 
story  and  basement;  of  ordinary  joisted  interior  construction,  the  high- 
one-story  parts  having  roofs  supported  on  wooden  trusses.  Ordinary 
plastered  wood  lath  used  in  most  of  the  rooms.  The  building  is  much 
dilapidated  but  is  now  undergoing  repairs.  On  account  of  the  general 
open  interior  construction,  the  use  of  ordinary  wood  lath  and  plaster 
and  joist  floors,  the  building  is  subject  to  a  bad  loss  in  the  event  of  a  fire. 
No  conclusion  could  be  reached  as  to  the  future  arrangements  of  heating 
and  lighting  from  the  present  stage  of  repair  work  now  going  on.  There 
is  almost  an  entire  absence  of  hand  fire  appliances  around  the  building. 

Recommendations. 

(1)  A  full  supply  of  3-gallon  chemical  extinguishers  should  be 
distributed  in  all  parts  of  the  building. 

(2)  Special  care  should  be  taken  in  all  electrical  installations  in 
this  building.  During  the  repair  work  now  going  on  all  old  and 
defective  wiring  should  be  removed.  The  class  of  construction  is 
such  that  a  short-circuiting  is  liable  to  result  in  a  serious  fire. 

(3)  Again,  on  account  of  the  light-joisted  type  of  construction, 
wood  flooring,  and  wood-lath  ceilings,  all  cooking  devices  should 
be  especially  well  guarded. 

La  Rabida,  Jackson  Park. 

A  frame  building  remotely  situated  from  any  city  fire-fighting  appa- 
ratus. This  building  was  locked  up  at  the  time  of  inspection  and  interior 
inaccessible.  On  account  of  its  remoteness  from  city  fire  protection,  it 
is  very  probable  that  a  total  loss  would  result  in  the  event  of  fire.  There- 
fore, every  precaution  should  be  taken  in  all  heating  and  lighting  devices 
and  a  full  equipment  of  hand  fire-fighting  apparatus  should  be  installed  if 
such  is  not  the  case. 

Small  Parks. 

In  all  of  the  small  parks  there  is  almost  a  uniform  type  of  construc- 
tion employed — concrete  walls  and  concrete  floors,  with  tile-covered  wood- 


162  Chicago  Bureau  of  Public  Efficiency 

trussed  roof  over  wood-joist  ceilings  in  all  portions  of  the  building  other 
than  the  assembly  rooms ;  in  these  large  rooms  the  ceilings  are  open, 
showing  the  clear  span  wood  trusses.  The  general  care  throughout  all 
of  the  small  parks  is  excellent.  As  a  rule,  the  boiler  rooms  are  of  fire- 
proof construction  and  the  small  cooking  devices  used  in  the  refectories 
safely  arranged.  At  a  number  of  the  parks,  however,  the  arrangement  of 
the  transformers  is  open  to  severe  criticism,  the  apparatus  for  the  most 
part  being  located  in  rooms  with  ordinary  joist  ceiling,  and  otherwise  not 
fireproof. 

At  Hamilton  Park  the  transformers  are  located  in  the  basement 
adjoining  the  boiler  room,  in  rather  crowded  quarters,  with  a  low,  open- 
joisted  ceiling  overhead,  being  directly  under  the  women's  toilet  rooms. 

At  Mark  White  Square  the  transformer,  in  addition  to  being  a  serious 
fire  hazard  on  account  of  its  location  in  a  non-fireproof  room,  is  a  serious 
menace  to  the  lives  of  employees  who  may  pass  near  the  transformer. 

As  a  rule,  the  buildings  at  each  of  the  parks  are  fairly  well  detached 
one  from  the  other.  At  Armour  Square,  however,  the  buildings  are  quite 
closely  grouped,  and  there  is  consequently  somewhat  of  a  mutual  exposure 
between  the  fieldhouse  and  the  gymnasium  building.  At  practically  all 
of  the  parks  the  immediate  fire  protection  is  scant. 

Recommendations. 

(1)  All  transformer  rooms  should  be  of  strictly  fireproof  con- 
struction— floors,  side  walls  and  ceilings — and  special  attention 
should  be  given  to  the  prevention  of  easy  access  to  the  transformer 
rooms  by  any  other  than  the  engineers  of  the  park.  In  no  cases 
should  these  transformer  rooms  be  used  for  storage  or  for  locker 
rooms,  as  is  the  case  at  Armour  Square. 

(2)  An  ample  supply  of  3-gallon  chemical  fire  extinguishers 
should  be  distributed  throughout  all  the  buildings  of  the  small  parks. 

Summ^ary. 

In  the  foregoing  report  no  mention  has  been  made  of  the  many 
excellent  features  which  obtain  in  and  around  the  greater  number  of  the 
buildings  of  the  South  Park  district.  As  a  rule,  the  condition  as  to 
cleanliness  and  order  is  commendable.  This  applies  particularly  to  the 
small  park  fieldhouses  and  gymnasiums.  There  are  two  features,  however, 
which  seem  most  open  to  criticism  at  all  of  the  park  properties. 

1.  The  lack  of  immediate  fire  protection,  and 

2.  The  failure  to  carry  out  fireproof  or  fire-resisting  construction 
throughout  in  all  of  the  new  buildings. 

In  no  private  properties  in  which  values  are  as  great  as  those  at  the 
parks  is  the  fire  protection  so  poor.  Briefly,  the  fire  protection  at  the 
parks  may  be  said  to  be  about  twenty-five  per  cent,  of  what  it  should  be. 

As  to  the  construction  of  the  newer  buildings,  it  seems  illogical  to 
have  erected  buildings  of  modern  fire-resisting  construction  up  to  the 
roof,  and  then  to  have  placed  thereon  a  roof  of  the  most  combustible  type. 


VI.    PARK  AND  BOULEVARD  PAVEMENTS 

For  several  years  the  three  large  Park  Boards  have  been  ex- 
perimenting with  the  various  types  of  road  construction  which 


The  Park  Governments  of  Chicago  163 

might  be  suitable  for  park  and  boulevard  drives.  The  result  of 
the  combined  experimentation  of  the  three  Boards  has  been  the 
adoption  by  each  of  an  asphaltic  concrete  pavement.  This  re- 
sult has  perhaps  been  hastened  by  reason  of  the  perfecting  by 
the  South  Park  engineers  of  a  portable  plant  for  mixing  bitu- 
minous concrete.  The  machine  was  developed  by  Assistant  Gen- 
eral Superintendent  Richards  and  Chief  Engineer  White  since 
entering  the  service  of  the  South  Park  Board.  Several  of  the 
machines,  which  are  built  by  the  Link  Belt  Company,  have  been 
sold  to  other  municipalities,  including  the  West  and  Lincoln 
Park  Boards. 

A  large  yardage  of  bituminous  concrete  pavement  is  being 
laid  each  year.  In  1910  approximately  25  miles  of  boulevards 
were  thus  improved.  Within  a  few  years  the  park  drives  and 
boulevards  will  be  completely  paved  therewith.  The  Bureau's 
study  and  inspection  of  paving  operations  has,  therefore,  been 
confined  to  this  type  of  construction. 

The  bituminous  concrete  referred  to  consists  of  a  mixture 
of  broken  stone,  sand,  and  bituminous  cement,  thoroughly  mixed 
before  being  laid  and  laid  immediately  after  mixing,  while  in  a 
plastic  condition.  A  thin  layer  of  granite  screenings  is  thrown 
on  the  surface  and  rolled  in  before  it  becomes  solidified.  This 
gives  a  gritty  coating.  The  colored  granite  is  pleasing  in  ap- 
pearance. The  South  and  Lincoln  Park  Boards  use  Wisconsin 
red  granite  screenings,  while  the  West  Park  Board  uses  black 
granite.  The  last  named  claims  that  the  black  granite  has  a 
greater  resistance  to  abrasion.  As  the  granite  screenings  form 
an  important  element  in  the  wearing  surface,  this  feature  is 
worth  consideration  by  the  other  two  boards. 

The  South  Park  Board  used  some  inferior  grades  of  as- 
phaltic oil  in  1910,  but  a  better  grade  was  used  during  1911. 
With  the  increase  in  automobile  traffic  the  tendency  should  be 
toward  the  use  of  asphalts  which  have  proven  successful.  The 
South  and  Lincoln  Park  Boards  get  their  asphalt  in  barrels  and 
it  has  to  be  broken  up  before  being  introduced  into  the  mixer. 
The  West  Park  Board  has  had  some  of  their  asphalt  delivered 
in  tank  wagons,  kept  heated  and  forced  by  air  pressure  to  the 


164  Chicago  Bureau  of  Public  Efficiency 

receiving  hoppers  of  the  mixer.  This  operation  has  some  ad- 
vantages over  the  use  of  asphalt  from  barrels. 

The  South  Park  Board  has  been  making  use  of  two  mix- 
ing plants  on  the  same  job,  thus  reducing  their  overhead  ex- 
pense for  foremen,  timekeepers,  etc.,  per  square  yard  of  pave- 
ment laid. 

Observation  was  made  by  the  Bureau's  engineers  during 
August,  1911,  of  the  pavement  then  being  laid  by  each  Park  Board. 
Each  Board  was  using  the  same  type  of  asphalt  mixing  plant 
and  about  the  same  auxiliary  tools.  The  rates  of  labor  wages 
paid  by  each  Board  were  practically  the  same  and  the  number 
of  men  in  each  gang  was  also  about  the  same.  The  salaries  of 
the  general  foremen  in  the  South,  West  and  Lincoln  Park 
Boards  were  $140.00,  $150.00  and  $110.00  per  month  respect- 
ively. Observations  were  made  when  the  weather  conditions 
for  each  were  nearly  identical.  The  mixing  machines  were  all 
in  running  order.  Moreover,  to  insure  a  fair  comparison,  the 
stone,  sand  and  asphalt  were  all  considered  delivered  on  the 
street  in  close  proximity  to  the  mixing  plant. 

The  amount  of  pavement  laid  during  the  period  of  observa- 
tion and  cost  of  labor  incident  thereto  were  as  follows : 

Square  Yards 

of  Pavement  Total  Labor  Cost  per 

per  Day.  Cost.  Sq.  Yard. 

West  Chicago    883  $95.85  $.1108 

Lincoln     986  100.77  .1022 

South    2,312  199.55  .0863 

The  relative  efficiency  of  the  paving  gangs  is  reflected  in 
the  above  table.  If  the  South  Park  gangs  worked  separately, 
instead  of  in  pairs,  it  would  increase  the  overhead  expense.  The 
cost  per  square  yard  under  such  conditions  for  each  gang  would 
be  $.0976,  which  is  also  lower  than  the  cost  of  the  West  and 
Lincoln  Park  tests. 

It  was  noticeable  that  there  was  much  lost  time  in  the  West 
Park  gang  by  reason  of  "horse  play"  among  the  men  and  a 
general  desire  to  sit  down  whenever  possible.  The  foremen  of 
the  Lincoln  Park  gang  did  not  give  sufficient  attention  to  the 
men,  and  consequently  the  latter  shirked  their  work.     One  fore- 


The  Park  Governments  of  Chicago  165 

man  was  observed  to  leave  the  gang  over  which  he  had  charge 
while  he  washed  the  windows  of  a  saloon.  A  timekeeper  of  this 
gang,  under  the  influence  of  liquor,  went  into  a  tool  house, 
locked  the  door  and  went  to  sleep.  He  remained  there  until 
the  house  was  being  moved  further  down  the  street,  when  the 
jolting  awakened  him. 

It  is  evident  that  a  considerable  saving  could  be  effected 
by  the  West  and  Lincoln  Park  Boards  if  efficient  supervision 
was  had  over  the  paving  gangs. 


VII.    NEED  FOR  REORGANIZATION 

The  results  of  the  present  inquiry  lead  the  Bureau  to  two 
conclusions  as  to  park  organization:  (1)  That  until  such  time 
as  legislative  authority  may  be  obtained  for  consolidation  of  the 
several  park  governments  and  the  accomplishment  thereof,  each 
of  the  three  large  Boards  should  adopt  a  more  scientific  and 
economical  plan  of  organization;  and  (2)  that  all  park  govern- 
ments within  the  city  of  Chicago  should  be  consolidated  with  the 
city  government  as  soon  as  possible.  The  present  conditions 
indicating  the  desirability  for  action  along  each  of  these  lines 
are  grouped  separately. 

NEED  FOR  REORGANIZATION  OF  EXISTING  PARK  BOARDS 

The  acts  creating  the  South  and  West  Park  Boards  provide 
for  the  election  each  year  of  a  president  and  an  auditor  from 
among  the  members  of  the  respective  Boards,  and  also  of  a  sec- 
retary and  a  treasurer  who  need  not  be  Board  members.  The 
by-laws  of  the  Lincoln  Park  Board  provide  for  the  annual  elec- 
tion from  among  the  Board  members  of  a  president,  vice-presi- 
dent, and  auditor.  By  ordinance,  that  Board  appoints  a  treasurer 
and  a  secretary,  who  are  not  necessarily  Board  members.  The 
ordinances  of  each  Board  also  provide  for  the  appointment  of 
a  general  superintendent  as  executive  head  and  a  staff  of  subor- 
dinate assistants. 

It  is  evident  that  the   form   of  government  originally  in- 


166  Chicago  Bureau  of  Public  Efficiency 

tended  for  each  of  the  several  park  districts  was  such  that  the 
policies  should  be  shaped  and  a  general  watchfulness  and  su- 
pervision exercised  by  a  small  legislative  body  acting  co-ordi- 
nately. A  careful  study  of  the  situation  as  it  has  actually  ex- 
isted shows,  however,  that  until  recently  conditions  in  the  South 
and  Lincoln  Park  systems  closely  boardered  on  a  one-man 
government,  and  that  such  conditions  still  obtain  in  the  West 
Parks.  Until  recently,  a  large  proportion  of  the  Board  work 
of  the  South  Park  system  has  been  done  by  a  standing  commit- 
tee. The  committee  system  is  still  in  use  by  the  West  and  Lin- 
coln Park  Boards,  the  former  having  seven  standing  committees 
and  the  latter  ten.  The  members  of  these  Boards  are  few  in 
number,  the  West  and  Lincoln  Park  Boards  comprising  only 
seven  members  and  the  South  Park  Board  only  five.  While  oc- 
casion may  arise  from  time  to  time  for  the  appointment  of  a 
special  committee  to  investigate  and  report,  it  is  submitted  that 
the  Boards  are  too  small  to  justify  any  of  them  in  maintaining 
standing  committees. 

No  salaries  are  provided  for  the  members  of  any  of  the 
Boards  except  $3,000  each  for  the  president  and  auditor  of 
the  South  Parks.  The  present  incumbent  of  the  former  office, 
John  Barton  Payne,  is  now  using  his  salary  to  purchase  histori- 
cal art  hangings  for  the  small  park  fieldhouses.  In  consideration 
of  the  fact  that  the  auditors  of  the  West  and  Lincoln  Parks  are 
not  salaried  and  the  real  auditing  is  performed  by  others  the 
salary  of  the  South  Park  auditor  seems  needless. 

While  such  changes  in  Board  organization  are  desirable, 
greater  changes  are  suggested  in  organization  of  the  executive 
forces. 

Many  instances  are  cited  in  this  report  of  losses  in  efficiency 
and  economy.  Most  of  these  and  many  more  which  can  be- 
come apparent  only  under  improved  organization  and  adminis- 
tration are  due  directly  to  the  lack  of  co-ordination  of  functions 
under  responsible  heads,  and  the  failure  to  delegate  sufficient 
authority  to  such  heads  and  to  charge  them  with  real  responsi- 
bility for  results.  The  forms  of  organizations  provided  were 
probably  adequate  in  the  beginning,  but  as  park  acreage  and 


The  Park  Governments  of  Chicago  167 

boulevard  mileage  have  been  added  and  developed  the  organiza- 
tions appear  to  have  been  added  to  and  patched  together  with- 
out due  regard  for  scientific  and  economical  management.  This 
is  especially  true  in  the  South  Parks,  where,  owing  to  more  rapid 
growth,  there  was  more  need  for  a  change  of  executive  methods. 
The  titular  executive  head  of  each  system  is  a  general  superin- 
tendent, although  in  the  West  Parks  the  secretary  appears  to 
be  the  actual  executive  head.  The  general  superintendents  of 
the  South  and  Lincoln  Park  systems  and  the  secretary  of  the 
West  Park  system  seem  to  have  endeavored  to  continue  giv- 
ing personal  attention  to  all  details  of  management  the  same  as 
was  possible  when  the  systems  were  smaller.  The  natural  re- 
sult has  been  that  the  relative  importance  of  matters  needing  at- 
tention has  sometimes  been  lost  sight  of  in  the  endeavor  to  cover 
all,  and,  by  going  over  the  heads  of  subordinate  superintendents 
and  foremen,  the  executive  heads  appear  sometimes  to  have 
destroyed  the  influence  of  the  former  with  the  men  under  them. 
Such  conditions  are  conducive  to  inefficiency  and  waste.  For 
several  years  the  then  president  of  the  South  Parks  assumed 
active  executive  control  over  the  system,  and  although  good 
results  appear  to  have  been  secured  there  was  constant  friction, 
due  to  his  efforts  to  install  a  new  organization.  The  present 
superintendent  of  Lincoln  Park,  by  delegating  departmental  au- 
thority to  his  subordinates  and  charging  them  with  responsibility 
for  the  execution  of  his  general  directions,  evidences  an  inten- 
tion to  correct  the  situation  there. 

In  1905,  1906  and  1907,  the  West  Parks,  which  had  sunk 
to  a  state  of  physical  dilapidation,  were  rehabilitated,  extensive 
improvements  were  put  under  way,  and  reorganization  estab- 
lished. Since  that  time,  however,  the  organization  has  disin- 
tegrated. The  function  of  appointing  and  removing  park  em- 
ployees has  been  exercised  by  the  secretary,  and  it  is  not  ap- 
parent that  the  general  superintendent  or  other  executive  officers 
have  been  consulted  often  as  to  the  fitness  of  applicants,  the 
necessity  of  their  employment,  or  the  cause  for  their  discharge. 
If  properly  administered  the  new  Civil  Service  law  should  correct 
many  of  the  past  evils  of  employment. 


168  Chicago  Bureau  of  Public  Efficiency 

The  office  of  secretary  of  the  South  Park  Board  was 
charged  with  the  direction  of  the  accounting  work  until  1910, 
when  the  office  of  comptroller  was  created  and  the  books  of  ac- 
count transferred  thereto  from  the  secretary.  There  was  no  war- 
rant, in  point  of  volume  of  work  involved,  for  employing  both 
a  comptroller  and  a  secretary.  This  was  subsequently  recog- 
nized, and  in  March,  1911,  the  office  of  comptroller  was  abolished, 
the  incumbent  of  that  office  elected  to  the  secretaryship,  and  the 
former  secretary  retired,  thus  bringing  the  accounting  system 
again  under  the  secretary's  control.  The  present  secretary  is 
an  experienced  public  accountant  and  is  completing  the  much- 
needed  improvement  which  he  commenced  as  comptroller,  that 
of  putting  the  accounting  system  on  a  modern  basis. 

The  remedy  suggested  to  each  of  the  three  Boards  is  the 
adoption  of  a  clear-cut  plan  of  departmental  or  staff  organiza- 
tion; and  the  placing  of  a  competent  man  at  the  head  of  each 
department,  to  whom  would  be  delegated  adequate  authority  by 
the  chief  of  the  executive  staff  (general  superintendent),  and 
whom  the  latter  would  hold  strictly  responsible  for  the  produc- 
tion of  efficient  results.  The  prime  requisite  of  organization, 
so  prominent  by  its  absence  from  the  present  system,  is  a  clearly 
defined  outline  of  authority  and  responsibility. 

The  suggested  plan  provides  that  the  auditor,  treasurer, 
secretary,  and  general  superintendent  would  each  be  independ- 
ent and  subordinate  only  to  the  Board.  The  civil  service  com- 
mission consisting  of  two  Board  members  and  a  superintendent 
of  employment  would  also  be  responsible  only  to  the  Board. 
The  departmental  staff  organization  suggested  for  the  forces 
under  the  general  superintendent  is  as  follows: 

Department.  In  Charge  of. 

General  Maintenance  General  Foreman, 

Engineering  Chief  Engineer. 

Horticulture     Chief  Landscape  Gardener. 

Police Captain  of  Police. 

Refectories    Manager  of  Refectories. 

Recreation     Director  of  Recreation. 

Purchasing   Purchasing  Agent. 

Zoological     Head  Animal  Keeper. 

With  two  exceptions,  the  above  organization  is  suggested 
for  each  Board.    A  refectory  department  is  not  included  in  the 


The  Park  Governments  of  Chicago  169 

present  plan  for  the  West  or  Lincoln  Park  systems  and  the  zoo- 
logical department  applies  only  to  the  latter.  While  the  secur- 
ing of  a  competent  restaurant  manager  is  recommended  for  the 
West  Parks,  the  suggested  plan  provides  for  his  remaining 
subordinate  to  the  head  of  the  general  maintenance  department 
until  the  restaurant  function  is  further  developed. 

The  suggested  plan  for  each  of  the  three  Boards  is  shown 
on  Charts  B,  D  and  F  in  the  Appendix.  The  simplicity  thereof 
and  directness  of  the  lines  of  authority  as  compared  with  the 
present  complex  organizations  may  be  appreciated  by  reference 
to  Charts  A,  C  and  E,  showing  the  present  organizations. 

The  Bureau  believes  that  a  Board  president,  aside  from 
being  presiding  officer,  should  voice  only  the  judgment  of  the 
entire  Board  as  expressed  in  open  meeting;  that  the  secretary, 
aside  from  performing  the  usual  secretarial  duties,  should  be  the 
actual  head  of  the  accounting  department,  and  also  responsible 
for  the  detailed  auditing  of  claims.  The  secretaries  of  the  South 
and  West  Park  Boards  in  the  latter  capacity  should  be  subor- 
dinate to  the  statutory  titular  auditor  (Board  member).  The 
timekeeper  and  collector  should  report  to  the  secretary.  The 
office  of  secretary  of  the  Lincoln  Park  Board  has  been  combined 
for  many  years  with  that  of  superintendent.  There  is  evident 
need  of  a  responsible  executive  head  for  the  accounting  and 
auditing  department.  The  duties,  however,  are  not  compatible 
with  those  devolving  upon  a  general  superintendent,  and  it  is 
therefore  suggested  that  the  functions  of  the  office  of  secretary 
be  broadened  to  include  the  accounting  and  detailed  auditing  work, 
and  that  a  competent  accountant  be  employed,  bonded  suffici- 
ently, and  charged  with  responsibility  for  the  efficient  conduct 
of  the  department.  Since  the  official  auditors  of  the  South 
Park  Board  and  of  the  West  Park  Board  are  required  by  statute 
to  be  Board  members,  no  change  is  suggested,  but  the  authority 
for  the  election  of  auditor  of  the  Lincoln  Park  Board  lies  in 
the  by-laws  which  may  be  easily  changed  and  it  is  therefore  sug- 
gested that  the  chief  accountant  and  secretary  be  made  the  of- 
ficial auditor  of  that  Board. 

It  is  suggested  that  the  office  of  secretary  of  the  West  Park 


170  Chicago  Bureau  of  Public  Efficiency 

Board  be  filled  by  an  experienced  accountant  and  office  man- 
ager, who  would  not  only  be  responsible  to  the  Board  for  the 
record  of  its  acts,  custody  of  its  files,  etc.,  but  would  be  com- 
petent to  install  and  direct  the  operation  of  a  complete  and  com- 
prehensive accounting  system.  The  present  condition  of  the 
accounts  is  bad.  The  salary  of  $4,800  per  year  paid  to  the 
present  secretary  is  excessive  for  the  duties  of  the  position, 
particularly  as  many  of  his  duties  are  performed  by  an  assistant 
secretary,  at  a  salary  of  $2,700.  If  the  activities  of  the  secretary 
were  confined  to  the  legitimate  duties  of  his  office,  there  would 
be  no  necessity  for  an  assistant  secretary,  although  the  latter 
might  well  be  appointed  purchasing  agent,  the  duties  of  which 
office  he  is  now  performing.  Relieved  of  other  responsibilities 
now  attached  to  the  office  of  assistant  secretary,  the  purchasing 
agent  should  be  expected  to  develop  increased  efficiency  in  his 
department. 

If  the  office  force  of  the  West  Park  Board  were  reorganized 
it  should  be  possible  to  dispense  with  two  $1,200  clerks — there 
are  now  five.  Briefly  outlined  the  force  and  its  duties,  exclusive 
of  purchasing  agent,  stenographer  and  messenger,  would  then  be 
as  follows : 

Secretary — General  supervision  of  accounting  and  auditing $3,000 

General  Bookkeeper — General,  appropriation  and  contract  ledgers. . . .  2,000 

Bookkeeper — Stores  ledger  and  expense  ledger 1,200 

Voucher  Clerk — Vouchering  and  registering 1,200 

Cashier — Receipt   records    (including   special   assessments) 1,200 

The  general  maintenance  department  should  have  charge 
of  the  general  upkeep  of  the  parks  and  boulevards,  care  of  lawns, 
sprinkling,  hauling,  etc.  The  stables  should  also  be  included 
in  this  department.  At  present  the  Lincoln  Park  organization 
includes  a  general  foreman,  whose  duties  do  not  appear  to  have 
been  clearly  defined.  Under  the  proposed  scheme,  his  responsi- 
bilities would  be  confined  to  the  maintenance  department.  In 
the  West  Parks  this  work  is  now  directed  by  the  general  super- 
intendent personally,  but  it  will  eventually  be  necessary  to  ap- 
point a  general  foreman  therefor. 

It  is  suggested  that  the  present  general  director  of  field- 
houses  and  playgrounds  in  the   South   Parks  and  the  director 


The  Park  Governments  of  Chicago  171 

of  playgrounds  of  Lincoln  Park  should  also  have  under  their 
respective  charges  all  of  the  sports  provided  for  the  public,  in- 
cluding boating,  golf,  tennis,  and  winter  sports ;  that  a  similar 
office  be  established  in  the  West  Parks,  and  that  each  of  the  three 
officials  be  designated  as  "director  of  recreation." 

Under  the  proposed  plan,  the  engineering  department  would 
have  charge  of  all  improvement  work  and  of  the  mechanical 
activities.  Directly  under  this  department  would  be  the  fore- 
man of  improvement  and  construction  work,  including  road 
building  and  repairs ;  also  the  engineering  corps  and  draftsmen. 
Under  direction  of  the  chief  engineer,  an  assistant  would  have 
charge  of  the  electric  plant  and  a  master  mechanic  would  have 
charge  of  the  repair  shops,  garage  and  laundries,  and  the  opera- 
tion and  upkeep  of  all  other  mechanical  equipment  of  the  park 
system.  In  the  Lincoln  Park  system  this  department  would 
include  the  special  engineer  in  charge  of  marine  extension  work. 
The  chief  engineer  would  maintain  an  office,  with  an  assistant 
and  necessary  clerks,  to  account  properly  for  work  in  the  shops 
and  to  prepare  cost  reports. 

It  is  suggested  that  the  purchasing  department  include  the 
stores  and  be  recognized  as  a  separate  departmental  unit. 

The  horticultural  department  of  the  South  Parks  would 
be  continued  as  at  present  organized.  The  suggested  plans 
for  the  other  two  systems  also  provide  for  a  chief  landscape 
gardener,  who  would  be  permanently  in  charge  of  this  depart- 
ment. In  Lincoln  Park  a  consulting  landscape  architect  is  now 
in  charge,  but  while  this  is  commendable  when  new  improve- 
ments or  extensive  alterations  are  being  planned,  it  is  believed 
the  department  should  at  all  times  have  a  real  and  visible  head. 
In  the  West  Parks  the  plantation,  floral  displays,  conserva- 
tories, and  propagating  houses  would  be  comprehended  in  the 
department.  The  organization  charts  shown  herein  do  not  in- 
clude consulting  landscape  architects,  their  employment  being 
left  to  the  judgment  of  the  respective  Boards. 

The  present  expense  of  the  legal  department  of  the  West 
Parks  appears  unwarranted.  It  includes  a  $3,000  attorney,  an 
$1,850   assistant   attorney,    a   $1,200    stenographer,    and    special 


172  Chicago  Bureau  of  Public  Efficiency 

counsel  when  occasion  requires.  The  assistant  attorney  and 
the  stenographer  are  both  practicing  law,  their  names  appear- 
ing on  the  door  of  the  downtown  office  of  C.  B.  Pavlicek,  the 
park  attorney.  The  Park  Board  recently  paid  the  assistant  at- 
torney $475  for  his  law  library. 

Rumors  that  West  Park  employees  were  being  used  from 
time  to  time  to  help  maintain  a  clubhouse  occupied  by  a  political 
club,  of  which  the  West  Park  attorney  is  president,  were  proved 
by  the  Bureau  to  be  well  founded.  On  April  27,  1911,  a  load  of 
sod  was  delivered  at  the  clubhouse,  1910  Kedzie  Avenue,  in  a 
two-horse  wagon  marked  "West  Parks."  For  the  next  four 
days  several  men,  who  appeared  to  be  Park  employees,  were  en- 
gaged in  sodding  the  lawn  and  in  trimming  and  planting  trees. 
Two  of  these  men  were  positively  identified  by  the  Bureau  in- 
vestigators on  May  1,  when  the  park  employees  received  their 
pay  checks.  Moreover,  a  city  policeman  on  duty  in  that  vicinity 
informed  a  Bureau  investigator  that  West  Park  employees  had 
done  the  work.  The  Bureau  investigators  observed  the  park 
attorney  directing  the  work  of  the  park  employees  on  the  club- 
house grounds. 

The  amount  of  legal  business  of  the  West  Park  Board  is 
not  greater  than  that  of  the  South  or  Lincoln  Park  Boards,  each 
of  which  employ  only  one  attorney.  The  Bureau  suggests  that 
the  salaries  of  the  assistant  attorney  and  of  the  stenographer  are 
unnecessary   expenditures. 

The  office  of  assistant  secretary  of  the  Lincoln  Park  sys- 
tem, now  vacant,  might  remain  so  under  the  suggested  re- 
organization, as  it  would  not  be  needed.  Departmental  organiza- 
tion also  would  enable  the  general  superintendent  of  the  South 
Parks  to  dispense  with  an  assistant  and  the  $4,200  salary  might 
be  saved. 

The  superintendent's  office  would  include  a  stenographer 
and  a  file  clerk.  The  janitors  and  others  employed  in  the  opera- 
tion of  the  administration  building  would  report  directly  to  the 
superintendent.  In  restaurants  they  would  report  to  the  restau- 
rant managers  and  in  fieldhouses  to  the  fieldhouse  directors. 
The  building  managers  need  not  be  continued  on  the  pay-roll. 


The  Park  Governments  of  Chicago  173 

The  sub-organization  of  the  police,  refectories,  recreation, 
and  purchasing  departments  is  discussed  fully  in  preceding 
chapters. 

While  it  is  plain  that  the  way  to  secure  large  savings  in 
operating  costs  is  to  consolidate  the  park  governments,  yet  a 
large  amount  may  also  be  saved  annually  to  each  of  the  three 
large  districts  by  adopting  a  scientific  plan  of  reorganization  and 
following  it  with  economical  but  energetic  administration  along 
the  lines  suggested  in  preceding  chapters  of  this  report. 

NEED  FOR  A  CONSOLIDATED  PARK  ORGANIZATION 

For  several  years  there  has  been  a  growing  public  opinion 
that  the  several  independent  park  districts  of  Chicago  should 
be  consolidated  with  the  city  government.  This  plan  was  em- 
bodied in  the  proposed  charter  submitted  to  the  legislature  in 
1905,  and  the  results  of  the  present  inquiry  tend  to  emphasize 
the  desirability  of  such  a  consolidation  at  an  early  date. 

Aside  from  the  three  large  park  districts  herein  discussed, 
there  are  seven  other  park  districts  within  the  city  limits.  There 
is  still  considerable  city  territory  not  within  any  park  district, 
and  which,  although  receiving  park  benefits,  pays  no  taxes  for 
park  maintenance.  (See  map  in  Appendix.)  Extending  over 
all,  moreover,  the  Special  Park  Commission  of  the  City  govern- 
ment operates  a  large  number  of  small  parks,  squares,  and  play- 
grounds. Mr.  F.  J.  Moulton,  of  the  City  Club  of  Chicago,  re- 
cently estimated  the  adult  and  child  population  for  each  acre  of 
park  in  the  three  large  districts  as  follows: 

Number  Adults  Number  Children 
per  acre.  per  acre. 

South    400  142 

West   1,419  SCO 

Lincoln     1,030  350 

These  figures  show  plainly  the  unequal  distribution  of  park 
facilities.  The  figures  for  Lincoln  Park  include  the  new  park 
extension  not  yet  completed. 

The  three  large  districts  fairly  represent  the  three  sides  of 
the  city  as  bounded  by  the  river.     The  chapter  on  "Taxes  for 


174  Chicago  Bureau  of  Public  Efficiency 

Park  Purposes"  shows  that  there  is  a  wide  variance  in  the 
amount  of  taxes  available  for  park  purposes  on  the  three  sides, 
and  that  this  variance  is  not  at  all  in  proportion  to  either  the 
park  acreage  or  the  population. 

The  attempts  to  so  organize  the  several  park  districts  as  to 
keep  them  out  of  politics  have  been  futile,  especially  in  the 
West  Park  District.  Making  the  West  and  Lincoln  Park  Poards 
appointive  by  the  governor  has  only  resulted  in  a  different  brand 
of  politics — that  incident  to  state  interests  and  factions  and  less 
susceptible  of  local  control.  The  condition  should  be  faced  that 
politics  will  enter  to  some  extent  into  any  kind  of  a  park  or- 
ganization. This  being  true,  it  is  submitted  that  the  plan  of  or- 
ganization should  be  such  as  to  be  most  susceptible  of  autonomy 
and  local  control.  It  is  easier  to  control  one  district  than  ten. 
The  nucleus  of  a  central  park  organization  under  the  direction 
of  the  city  government  already  exists  in  the  special  park  com- 
mission. Chart  G  in  the  Appendix  shows  a  suggested  plan  of 
organization  for  a  consolidated  park  government. 

Aside  from  increased  efficiency,  consolidation  would  make 
possible  a  large  saving  in  operating  costs.  The  park  police 
would  be  merged  in  the  city  police  department,  with  conse- 
quent elimination  of  duplication  of  work  and  a  large  reduction  in 
the  number  required.  The  mechanical  and  electrical  departments 
of  the  parks  might  be  consolidated  with  other  city  departments,  and 
thus  eliminate  much  overhead  expense.  For  example :  The 
park  repair  shops  might  be  brought  within  the  circle  of  possible 
consolidation  of  all  city  repair  shops,  which  would  undoubtedly 
mean  much  lower  costs;  the  electrical  activities,  including  light- 
ing of  parks,  boulevards,  and  buildings,  might  be  merged  in 
the  city  department  of  electricity ;  and  the  road  building  and 
road  repair  forces  united  with  the  City  Board  of  Local  Improve- 
ments and  Bureau  of  Streets.  The  present  city  purchasing  agent 
might  easily  serve  all  parks ;  the  corporation  counsel's  office 
might  do  the  work  now  done  by  the  several  park  attorneys ; 
the  city  architect  and  engineering  bureau  might  perform  much 
of  the  park  work  appropriate  to  their  offices ;  all  funds  might  be 
kept  by  the  city  treasurer  and  cleared  through  the  hands  of  the 


The  Park  Governments  of  Chicago  175 

city  comptroller;  and  in  the  park  departments  of  recreation,  re- 
fectories, etc.,  one  director  or  manager  would  save  the  salaries  of 
several.  Likewise,  one  general  superintendent  or  director  over 
all  parks  would  save  the  salaries  of  several  chief  executives. 

The  Bureau  believes  that  if  all  of  the  park  governments 
were  consolidated  with  the  city  government  an  aggregate  annual 
saving  of  not  less  than  $500,000  might  be  effected.  The  de- 
tail items  supporting  this  amount  are  shown  in  the  summary 
(page  181). 


SUMMARY  AND  CONCLUSIONS  OF  PART  FOUR 


Electric  Lighting  and  Heating  Plants. 

1.  The  West  Chicago  and  Lincoln  Park  Boards  con- 
tracted with  the  Sanitary  District  for  electric  current 
soon  after  they  learned  that  the  district  would  sell  it 
cheaper  than  the  Park  Boards  could  generate  it.  Their  ac- 
tion in  this  matter  is  to  be  commended.  The  South  Park 
Board,  on  the  other  hand,  proceeded  with  the  construc- 
tion of  an  expensive  steam-driven  electric  plant,  although 
it  might  have  foreseen  that  it  could  not  compete  in  cost 
of  producing  electric  current  with  the  Sanitary  District. 
This  failure  on  the  part  of  the  South  Park  Board  to  co- 
operate with  the  Sanitary  District  resulted  in  a  needless 
expenditure  of  approximately  $319,000. 

2.  One  operator  to  each  watch  should  suffice  at  the 
Washington  Park  power  house  of  the  South  Park  Board 
after  it  is  changed  to  a  static  station.  This  would  reduce 
the  present  pay-roll  approximately  $1,600. 

3.  The  West  Park  Board  has  three  substations,  where- 
as one  would  have  sufficed.  With  one  central  station  at 
Garfield  Park,  four  operators  could  have  been  dispensed 
with,  at  an  annual  saving  of  $4,000.  A  considerable 
amount  for  cost  of  equipping  the  other  two  stations  could 
also  have  been  saved  thereby.     By  consolidating  the  du- 


176  Chicago  Bureau  of  Public  Efficiency 

ties  of  switchboard  operators  with  the  duties  of  operating 
the  steam  engines  in  Humboldt  and  Douglas  Parks  this 
$4,000  annual  saving  may  still  be  effected. 

4.  The  number  of  coal  passers  at  Garfield  Park  may 
be  reduced  so  as  to  save  $1,260  annually  without  dimin- 
ishing the  efficiency. 

5.  The  heating  plants  at  Lincoln  Park  are  badly  ar- 
ranged, requiring  a  high-grade  of  coal  and  two  sets  of  fire- 
men. With  a  properly  equipped  central  heating  plant,  con- 
siderable economy  might  be  effected,  including  the  sala- 
ries of  three  firemen,  which  amount  to  $1,620  per  year. 
With  proper  coal  and  ash  handling  equipment,  one  opera- 
tor per  watch  could  take  care  of  the  electric  substation 
and  steam  plant,  making  possible  a  further  reduction  of 
$1,080  per  year.  A  new  building  is  not  needed  for  a  new 
power  plant;  only  a  rearranging  of  the  power  and  heat 
developing  and  mechanical  equipment. 

6.  With  the  consolidation  of  the  three  Park  Boards, 
a  further  reduction  could  be  made  in  the  cost  of  operat- 
ing the  electric  and  heating  plants  by  consolidating  the 
duties  of  the  chief  electrical  and  steam  engineers.  This 
would  effect  a  further  reduction  in  expense  of  $6,900  per 
year. 

7.  Sheridan  Road  and  the  downtown  portion  of  Michi- 
gan Avenue  are  now  the  best-lighted  streets  in  Chicago. 
The  former  is  under  the  jurisdiction  of  the  Lincoln  Park 
Board  and  the  latter  of  the  South  Park  Board.  The  light- 
ing of  Michigan  Avenue  has  four  times  the  spherical 
candle  power  and  costs  a  little  less  than  twice  as  much 
as  that  on  Sheridan  Road.  While  the  present  illumina- 
tion on  Sheridan  Road  appears  adequate  for  any  boule- 
vard in  the  city,  the  additional  candle  power  of  Michigan 
Avenue  may  be  made  available  at  considerably  less  than 
that  paid  by  the  South  Park  Board.  This  may  be  effected 
by  adopting  the  Michigan  Avenue  style  of  lamps  and  the 
Sheridan  Road  style  of  posts. 


The  Park  Governments  of  Chicago  \77 

Lincoln  Park  Extension. 

1.  The  construction  methods  employed  in  the  Exten- 
sion of  Lincoln  Park  appear  to  be  well  planned  and  should 
produce  economical  results. 

2.  The  purchase  of  the  farm  at  Lemont  close  by  the 
rock  spoil  banks  of  the  drainage  canal  was  well  advised. 
Both  the  rock  for  breakwaters  and  soil  for  the  park  are 
obtained  cheaply. 

Marquette  Park. 

L  Marquette  Park  was  purchased  by  the  South  Park 
Board  in  1903  and  1904  at  a  cost  of  $267,733.  Between 
that  time  and  February  28,  1911,  the  Board  expended 
$305,943  for  improvements  to  the  park.  The  park  is  lo- 
cated in  a  sparsely  settled  part  of  the  city.  Even  now 
there  are  only  approximately  5,000  people  living  within 
walking  distance  of  the  park.  The  houses  all  have  front 
or  back  yards  or  both  and  there  are  a  large  number  of 
vacant  lots.  The  Bureau  investigators  saw  more  children 
playing  in  the  vacant  lots  than  in  the  parks.  The  nearest 
street  car  line  leaves  visitors  one-half  mile  from  the  near- 
est part  of  the  park.  Between  the  car  line  and  the  park 
none  of  the  streets  are  graded  and  there  are  no  sidewalks. 

2.  The  Bureau  contends  that  the  land  having  been 
purchased,  the  development  thereof  as  a  park  should  have 
awaited  population  in  that  vicinity  and  the  accompanying 
demand  for  park  facilities. 

3.  The  Board  has  been  paying  4  per  cent,  interest  on 
the  money  used  for  the  premature  improvement  of  this 
park.  This  interest  has  amounted  to  over  $50,000.  In 
view  of  the  conditions  above  described  this  amount  to- 
gether with  the  annual  cost  of  maintaining  the  park  has 
practically  been  thrown  away. 

South  Park  Administration  Building. 

1.  The  South  Park  Board  in  1909  contracted  for  the 
erection  of  a  new  administration  building.     (See  protest 


178  Chicago  Bureau  of  Public  Efficiency 

of  one  of  the  commissioners,  page  154).  The  building 
was  recently  completed  at  a  cost  of  $173,418.  It  is  larger 
than  necessary  and  contains  an  excessive  amount  of  space 
for  architectural  treatment  only. 

2.  The  old  building,  although  somewhat  small,  was 
well  constructed  and  artistic.  It  could  have  been  doubled 
in  size  so  as  to  afford  ample  facilities  and  still  conserve 
the  artistic  architectural  features  at  a  cost  of  only  $28,408. 
Had  this  been  done,  the  Board  would  have  avoided  an 
expenditure  of  approximately  $145,000. 

3.  Even  if  the  South  Park  government  were  to  be 
continued  independently,  there  still  w^as  no  need  fbr 
so  large  and  expensive  a  building.  Moreover,  in  view 
of  the  growing  sentiment  for  consolidation  of  the  park 
governments,  the  Bureau  submits  that  the  action  of 
the  South  Park  Board  in  erecting  so  costly  a  structure,  not 
centrally  located  and  not  well  adapted  to  other  purposes, 
was  ill  advised.  The  Bureau  suggests  that  no  more  build- 
ings of  this  character  be  erected  by  any  of  the  Park 
Boards. 

Insurance  of  Park  Structures. 

1.  The  South  Park  Board  provides  its  own  insurance 
by  maintaining  a  reserve  fund,  and  for  this  the  Board 
is  to  be  commended.  The  reserve  now  amounts  to  ap- 
proximately $300,000.  If  a  fund  of  only  $100,000  were 
maintained,  with  one  exception  it  would  still  be  adequate 
protection  against  the  damage  which  might  be  done  by  any 
single  fire.  The  exception  noted  is  the  group  of  build- 
ings comprising  the  stables,  power  plants  and  shops, 
which  constitute  a  "one  fire"  risk  of  over  $200,000.  If 
that  portion  of  the  fund  in  excess  of  $100,000  should 
be  needed  for  other  purposes  it  might  be  so  used  without 
diminishing  the  insurance  protection,  provided  an  under- 
writers' policy  were  secured  on  the  group  of  buildings 
above  mentioned.  The  interest  on  a  $100,000  fund  would 
more  than  suffice  to  pay  the  premium  on  such  a  policy. 


The  Park  Governments  of  Chicago  179 

2.  Business  prudence  demands  that  care  be  taken  to 
eliminate  so  far  as  possible  all  fire  hazards.  In  view  of 
the  fact  that  the  Park  Board  assumes  the  entire  fire  risk 
by  carrying  its  own  insurance,  it  ought  to  be  doubly  care- 
ful in  this  respect,  and  yet  the  insurance  inspectors  who 
examined  the  South  Park  properties  for  the  Bureau  re- 
ported that  "in  no  private  properties  in  which  values  are 
as  great  as  those  at  the  parks  is  the  fire  protection  so 
poor.  It  may  be  said  to  be  about  twenty-five  per  cent, 
of  what  it  should  be." 

3.  The  West  and  Lincoln  Park  Boards  maintain  no 
insurance  reserve  funds,  but  carry  underwriters'  policies 
on  the  park  structures.  The  economy  of  carrying  under- 
writers' policies  only  on  the  large  values  and  maintaining 
an  insurance  reserve  fund  for  the  small  values  is  sug- 
gested for  the  consideration  of  those  Boards. 

Park  and  Boulevard  Pavements. 

1.  The  South,  West  and  Lincoln  Park  Boards  have 
each  adopted  a  bituminous  concrete  pavement  for  park 
drives  and  boulevards.  This  is  a  new  kind  of  pavement 
in  Chicago,  and  while  it  appears  to  be  satisfactory  thus 
far,  it  has  been  in  use  only  a  comparatively  short  time  and 
the  ultimate  result  cannot  yet  be  determined. 

2.  It  is  suggested  that  each  Board  make  careful  tests 
of  the  materials  used,  so  that  standards  may  be  estab- 
lished which  may  be  adopted  by  all  three  Boards.  Such 
action  should  result  in  a  general  reduction  of  costs.  Ob- 
servations made  by  the  Bureau's  engineers  during  August, 
1911,  showed  that  the  labor  cost  per  square  yard  to  the 
West  and  Lincoln  Park  Boards,  respectively,  was  11.08 
cents  and  10.22  cents,  compared  with  8.63  cents,  the  cost 
to  the  South  Park  Board.  The  South  Park  Board  elimi- 
nated part  of  the  overhead  cost  by  operating  two  asphalt 
mixing  machines,  but  even  when  computed  on  the  same 
basis  as  for  the  other  two  Boards,  the  labor  cost  per 
square  yard  was  only  9.76  cents.     The  excessive  cost  to 


180  Chicago  Bureau  of  Public  Efficiency 

the  West  and  Lincoln  Park  Boards  was  due  to  lax  super- 
vision. 

Need  for  Reorganization. 

1.  The  park  acreage  in  Chicago  is  very  unequally 
divided  among  the  three  sides  of  the  city.  In  addition 
to  the  Special  Park  Commission  of  the  City  government, 
there  are  now  ten  distinct  park  governments  within  the 
city  and  there  is  still  considerable  city  territory  not  within 
any  park  district,  which,  although  receiving  park  benefits, 
pays  no  taxes  for  park  purposes. 

2.  A  muhiplicity  of  park  districts  is  not  conducive  to 
economy  or  efficiency  and  the  Bureau  recommends  that 
all  park  governments  within  the  City  of  Chicago  be  con- 
solidated with  the  city  government  as  soon  as  possible.  A 
suggested  plan  of  organization  for  a  consolidated  park 
government  is  charted  herein. 

3.  The  park  governments  of  Chicago  as  now  organ- 
ized are  not  easily  susceptible  of  control  by  the  people  of 
Chicago.  The  West  and  Lincoln  Park  Boards  are  ap- 
pointed by  the  Governor  of  Illinois  and  the  South  Park 
Board  by  the  Circuit  Judges  of  Cook  County.  Consoli- 
dation of  the  several  park  governments  with  the  city  gov- 
ernment would  centralize  control  and  responsibility  and 
make  the  government  of  the  parks  more  democratic. 

4.  The  items  of  cost  which  it  may  be  definitely  fore- 
seen might  be  eliminated  under  a  consolidated  park  gov- 
ernment aggregate  $500,000  a  year.  The  Bureau  is  con- 
fident that  many  other  opportunities  for  reducing  park 
costs  and  increasing  efficiency  would  become  apparent 
after  a  consolidation  was  effected.  The  sum  of  $500,000 
a  year  would  go  a  great  ways  in  extending  Chicago's  sys- 
tem of  small  parks  and  playgrounds.  Some  idea  of  the 
number  of  additional  faciHties  which  might  be  secured 
with  an  annual  expenditure  of  that  amount  is  afforded 
by  the  fact  that  at  the  close  of   1910  the  Special  Park 


The  Park  Governments  of  Chicago  181 

Commission  of  the  city  government  was  maintaining  13 
playgrounds  and  shelters,  3  field  houses  and  playgrounds, 
2  bath  houses  and  beaches  and  50  small  squares  and  tri- 
angles; and  yet  the  aggregate  appropriations  received 
from  the  city  from  1900  to  1910,  inclusive,  amounted  to 
only  $726,765. 

The  items  supporting  the  estimated  $500,000  annual 
saving  are  as  follows : 

Salaries  of  Commissioners   (South  Park) $    6,000 

General    Superintendents    12,000 

Assistant    Superintendents    6,300 

Secretaries,  Accountants,  Bookkeepers,  Clerks,  etc 26,000 

Attorneys     \ 15,000 

Engineers    10,000 

Playground   Directors    3,000 

Boulevard  and  Park  Police 100,000 

Purchasing    Agents 5.500 

Landscape   Architects    4,000 

Stable  Foremen  and  Stablemen 7,440 

Building  Foremen    (South  Park) 11,850 

Sub-station  Operators  and  Coal  Passers 9.560 

Telephone  Operators 2,900 

Purchase   of    Supplies   and    Materials    (10   per    cent,    of 

$1,000,000)     100.000 

Automobile   Service    45,000 

Management  of  Restaurants 20,000 

Laundry   (West  Park)    4,500 

Lease  of  Pavilion   (West  Park) 2,000 

Higher  prices  for  bonds,  higher  interest  on  deposits,  sav- 
ing on  equipment,  buildings,  insurance  and  outdoor 
labor,  better  control  of  boat  receipts,  greater  efficiency 
of  stables,  repair  shops,  etc.,  salvage  on  automobiles, 

horses,  etc.,  and  smaller  cash  balance  necessary 108,950 

Total  amount  which  may  be  saved  annually $500,000 

5.  The  efficiency  of  the  working  organization  provided 
by  each  of  the  three  large  park  governments  has  been 
greatly  hindered  by  the  failure  to  delegate  sufficient 
authority  to  department  heads  and  to  charge  them  with 
responsibility  for  results.  Until  such  time  as  legislative 
authority  may  be  obtained  for  consolidation  of  the  several 
park  governments  with  the  City  government  and  the 
accomplishment  thereof,  it  is  suggested  that  greater  effi- 
ciency might  be  obtained  if  each  of  the  three  large  Boards 
adopted  a  more  scientific  plan  of  organization.     A  sug- 


182  Chicago  Bureau  of  Public  Efficiency 

gested  plan  of  reorganization  for  each  is  described  and 
also  charted  in  this  report. 

6.  While  it  is  necessary  to  consolidate  the  several 
park  governments  in  order  to  secure  the  largest  financial 
saving,  yet,  as  explained  in  the  text  of  this  report,  large 
savings  may  be  effected  even  under  a  continuation  of  the 
present  park  governments.  The  annual  savings  sug- 
gested include  not  less  than  $60,000  in  police  salaries, 
$22,000  in  operation  and  maintenance  of  automobiles, 
$20,000  in  operation  of  restaurants,  $11,850  salaries  of 
building  foremen,  $14,000  in  salaries  of  office  employes, 
$9,000  in  salaries  of  substation  and  steam  plant  employes, 
$4,000  in  salaries  of  stablemen,  etc.  Higher  rates  of  in- 
,  terest  should  be  secured  on  deposits.    Large  savings  could 

also  be  realized  by  the  adoption  of  better  methods  of 
purchase  and  inspection  of  supplies  and  materials.  Better 
methods  of  accounting  should  also  assist  in  effecting  finan- 
cial savings.  It  seems  probable  also  that  there  might  be 
a  considerable  saving  in  the  cost  of  outdoor  labor  without 
any  reduction  in  efficiency,  although  that  phase  of  the  park 
expenditures  has  not  been  included  by  the  Bureau  in  the 
present  inquiry. 


APPENDIX 


TABLE  A. 

WEST  CHICAGO  PARK  COMMISSIONERS 

Table  showing  amounts  of  General  Fund  available  for  deposit  in  bank 
during  1909-10,  amounts  deposited,  and  amounts  not  deposited. 


Amount  Available 

Date  of  Deposit 

FOR  Deposit 

Amounts     Deposited 

Amounts  not 

(per  cash  book) 

Deposited 

1909 

January       30 

$       926.15 

$        922.20 

$            3.95 

February    27 

2,356.76 

2,272.41 

84.35 

March           6 

834.35 

700.00 

134.35 

26 

1,138.85 

1,000.00 

138.85 

31 

150,214.55 

150,000.00 

214.55 

April            22 

12,680.78 

12,000.00 

680.78 

28 

1,160.00 

479.22 

680.78 

May              1 

61,010.92 

60,000.00 

1,010.92 

1 

1,010.92 

930.28 

80.64 

15 

4,616.31 

4,106.00 

510.31 

June               1 

151,103.80 

149,052.62 

2,051.18 

22 

155,089.13 

150,000.00 

5,089.13 

28 

106,277.84 

100,000.00 

6,277.84 

July             12 

8,325.33 

1,784.98 

6,540.35 

15 

6,645.90 

4,682.04 

1,963.86 

August          5 

156,304.32 

150,000.00 

6,304.32 

26 

9,399.07 

5,661.62 

3,737.45 

30 

24,859.66 

20,000.00 

4,859.66 

September    1 

19,864.66 

15,000.00 

4,864.66 

29 

107,731.19 

100,000.00 

7,731.19 

October       26 

8,953.02 

2,999.96 

5,953.06 

26 

5,953.06 

4,849,36 

1,103.70 

November  12 

1,506.16 

1,378.86 

127.30 

16 

100,127.30 

100,000.00 

127.30 

30 

1,457.09 

342.92 

1,114.17 

December  11 

151,515.97 

150,000.00 

1,515.97 

18 

43,369.04 

41,633.22 

1,735.82 

28 

1,866.30 

1,101.67 

764.63 

29 

846.13 

81.50 

764.63 

31 

1,356.49 

60.40 

1,296.09 

31 

1,296.09 

752.13 

543.96 

31 

543.96 

103.22 

440.74 

1910 

February       1 

S     2,605.01 

$     2,082.52 

$        522.49 

March            8 

1,466.33 

34.50 

1,431.83 

11 

3,543.38 

685.50 

2,857.88 

25 

152,867.88 

150,000.00 

2,867.88 

April              9 

3,038.51 

1,683,63 

1,354.88 

9 

1,354.88 

898.34 

456.54 

9 

456.54 

8.00 

448.54 

11 

457.79 

415.95 

41.84 

15 

77,104.76 

75,000.00 

2,104.76 

May              2 

2,876.93 

27.00 

2,849.93 

12 

144,864.68 

141,821.80 

3,042.88 

June              8 

155,034.67 

150,000.00 

5,034.67 

July               1 

109,903.70 

100,000.00 

9,903.70 

27 

15,822.45 

2,606.14 

13,216.31 

28 

13,231.31 

15.00 

13,216.31 

28 

13,216.31 

1,816.50 

11,399.81 

30 

161,888.21 

150,000.00 

11,888.21 

August        31 

118,216.63 

100,000.00 

18,216.63 

31 

18,216.63 

7,521.30 

10,695.33 

31 

10,695.33 

4,993.82 

5,701.51 

September  20 

7,689.11 

6,576.64 

1,112.47 

30 

101,804.74 

100,000.00 

1,804.74 

October         7 

3,944.84 

1,667.73 

2,277.11 

22 

104,370.57 

100,000.00 

4,370.57 

29 

104,457.63 

100,000.00 

4,457.63 

November  14 

5,233.17 

2,030.37 

3,202.80 

14 

3,202.80 

305.95 

2,896.85 

15 

2,907.10 

2,734.73 

172.37 

15 

100,172.37 

100,000.00 

172.37 

29 

276,087.68 

275,716.79 

370.89 

December     7 

883.81 

26.60 

857.21 

19 

1,051.13 

680.99 

370.14 

31 

1,724.98 

122.90 

1,602.08 

31 

1,602.08 

35.00 

1,567.08 

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TABLE  C. 

TABLE  SHOWING  ASSESSED  VALUE   IN   EACH    PARK  DISTRICT  AND   TOWN 

FOR  1910,  THE  AMOUNT  OF  TAX  LEVIES  CERTIFIED  TO  THE  COUNTY 

CLERK,  AND  THE  RATE  AND  AMOUNT  EXTENDED  ON  THE 

TAX  ROLLS. 


Park  District. 

Town. 

Assessed 

Value 

(One-third 

Full  Value). 

Amount 

Certified 

TO  County 

Clerk. 

Extended  by 
County  Clerk. 

Rate. 

Amount. 

South 

South 

$341,263,711 

103,967,495 

64,578,577 

(( 

Hyde  Park 

Lake.  . . 

(< 

Calumet 

Calumet 

Calumet 

vision  of  City .... 

Fernwood 

Ridge 

$509,809,783 

770,916 

1,185,460 

41,500 

$2,600,000 

3,608 

6,142 

112 

51 
50 
55 

27 

$2,601,159 
3,867 
6,542 

Calumet. . 

112 

Total,  South  Di 

$511,807,659 

$2,609,862 

.. 

$2,611,680 

West 

West.   .  .  . 

$186,573,669 
4,607,297 

$2,287,338 
8,845 

82 
20 

$1,437,263 

Irving 

Jefferson 

ision  of  City 

9,256 

Total,  West  Div 

$191,180,966 

$2,296,183 

$1,446,519 

Lincoln 

North.  . 

$  68,330,444 
54,224,144 

$    590,684 
534,837 

75 

88 

$    512,725 

Lake  View 

Evanston 

Evanston 

vision  of  City .... 

477,514 

North  Shore 

Ridge  Avenue 

$122,554,588 

2,440,418 
884,719 

$1,125,521 

10,479 
3,300 

43 

40 

$   990,239 

10,506 
3,544 

Total,  North  Di 

$125,879,725 

$1,139,300 

$1,004,289 

Total,  all  Park 

Districts 

$828,868,380 

$6,045,345 

64 

$5,062,488 

Property  in  City 
tricts 

not  in  Park  Dis- 

20,126,156 

lue  of  City 

Total  Assessed  Va 

$848,994,536 

-SONDED  DEBT  OUTSTANDING 


If 


Special  Park 

Commission, 

Year  Ending 

12-31-10. 


$130,101. 68(a) 


Total. 


$4,901,540.38 

64,939.19 

49,141.01 

211,310.70 

29,073.81 

18,104.75 

35,000.00 

217,528.75 

130,101.68 


130,101.68 


5,656,740. 27(b) 
1,919,009.00 


$130,101.68 


$7,575,749.27 


d 


66,951.84 
28,182.77 
13,793.46 
21,173.61 


$1,815,503.75 

985,222.28 

527,137.37 

1,235,015.68 

449,065.74 

35,600.00 

804,911.45 

85,738.81 

65,458.99 


130,101.68 


6,003,654.07 
1,572,095.20 


$130,101.68 


$7,575,749.27 


$10,550,666.66 
$   470,458.81 


lUected  until  1911;  Northwest  Park 


TABLE    D. 

TABLE  SHOWING  RECEIPTS  AND  EXPENDITURES  FOR   EACH  PARK  BOARD  DURING  THE  FISCAL  YEAR  1910;  ALSO  THE  BONDED  DEBT  OUTSTANDING 

AND  SINKING  FUNDS  PROVIDED. 


South, 

Year  Ending 

2-28-11. 

West  Chicago 

Year  Ending 

12-31-10. 

Lincoln. 

Year  Ending 

12-31-10. 

North 

Shohe, 

Year  Ending 

5-31-10. 

Fernwood, 

Year  Ending 

5-31-10. 

EinOE 

Avenue, 

Year  Ending 

5-31-10. 

Ridge, 

Year  Endins 

5-31-10. 

Special  Park 

Commission, 

Year  Ending 

12-31-10. 

Total. 

RECEIPTS. 

$2,303,843.50 
20,024.11 
36,060.12 
135,149.43 
10,434.09 
2,774.71 

$1,571,848.87 
40,356.45 
7,813.59 
35,295.45 
1,736.07 
308.00 

.$1,014,212.81 
4,558.63 
4,989.68 
40,516.33 
16,903.65 
15.009,54 
35,000.00 
137,500.00 

$  4,510.70 

$  2,820. 18 

$  1,999.49 

$  2,304.83 

$4,901,540.38 
64,939.19 
49,141.01 
211,310.70 
29,073.81 
18,104.75 
35,000.00 
217,528.75 
130,101.68 

Special  Assessments 

53.10 
224.35 

224.52 

Fees,  Charges  and  Park  Industries 

118.00 

7.14 

i2.'56 

42,718.00 

2,666.66 

35,316.75 

$130,101. 68(a) 

2,508,285.96 
1,339,495.65 

1,700,076.43 
363,241.71 

1,268,690.64 
207,721.93 

4,788.15 
6,122.31 

4,938.18 
405.87 

2,006.63 
1,709.71 

5,656,740. 27(b) 
1,919,009  00 

Cash  Balance  Beginning  of  Year  . 

311.82 

' 

TOTAL  . 

$3,847,781.61 

$2,063,318.14 

$1,476,412.57 

$10,910.46 

$  5,344.05 

$  3,716.34 

$38,164.42  1  $130,101.68 

$7,575,749.27 

EXPENDITURES. 

Maintenance — Salaries  and  Wages 

8   894,550.57 
435,106.82 
289,671.45 
673,819.14 
246,250.00 

$   530,532.11 
272,243.70 
27,451.35 
150,393.35 
127,516.22 

$   317,010.08 
248,495.53 
196,221.11 
383,704.90 
72,452.79 
35,000.00 
54,237.92 
17,863.08 
65,046.87 

$  3,551.18 
374.59 

$  1,049.65 
289.52 

$  1,562.22 
141.08 

$      296.10 
388.27 

$  66,951.84 
28,182.77 
13,793.46 
21,173.61 

$1,815,503.75 
985,222.28 

527,137.37 

2,926.53 
1,280.00 

2,547.65 
622.22 
100.00 

456.56 
944.51 
500.00 

1,235,015.68 

449,065.74 

35,600.00 

4.'?5,000.00 
37,926.15 

315,673.53 
29,310.28 

804,911.45 

115.74 

241.49 
412.12 

80.35 

261.72 

85,738.81 

Transfers  to  Sinking  Fund 

65,458.99 

3,012,324.13 
835,457.48 

1,453,120.54 
610,197.60 

1,390,032.28 
86,380.29 

8,248.04 
2,662.42 

5,262.65 
81.40 

1,783.65 
1,932.69 

2,781.10 
35,383.32 

130,101.68 

6,003,654.07 

Cash  Balance  Close  of  Year 

1,572,095.20 

TOTAL 

$3,847,781.61 

$2,063,318.14 

$1,476,412.57 

$10,910.46 

$  5,344.05 

$  3,716.34 

$38,164.42    $130,101.68 

$7,575,749.27 

$5,920,000.00 
1- 

$2,763,166.66 

$1,790,000.00 
$    470,000.00 

$32,000.00 

$13,000.00 
$     458.81 

$32,500.00 

$10,550,666.66 

Sinking  Fund 

$    470,458.81 

NOTE:    (a)      The  Special  Park  Commission  receives  an  annual  appropriation  from  the  city  government.  »  j  „„♦;!  1011 .  Mnrth«7eat  Park 

(b)     Calumet  Park  District  was  mostly  outside  the  city  limits  in  1910;  Irving  park  District  levied  taxes  in  1910  which  were  not  collected  untJ  1911,  Northwest  l-ark 
District  was  not  organized  until  1911. 


TABLE   E. 
FIELDHOUSES,  PLAYGROUNDS,  SWIMMING  POOLS  AND  BATHING  BEACHES  MAINTAINED  BY  THE  SOUTH, 
WEST,  AND  LINCOLN  BOARDS  AND  THE  CITY  GOVERNMENT 


Total  Population  777,45' 


SOUTH  PARK  BOARD. 

INFORMATION  SHOWN  IS  FOR  THE    YEAR  ENDING  FEBRUARY  28,  1911. 
Child  populatioa  (estimated)  275,300. 


Area  93  square  miles- 


Location. 

Ahea 
Acres 

Equipment. 

USES  OF  FACILITIES.                                        | 

Name  of  Pabk. 

Outdoor 
Athletics. 

Indoor                      Social  and 

Athletics.  |               Intellectual. 

Total. 

Operation. 

.  g  ^^j^ 

Marshfield  Ave.  and  45th  St 

Center  Ave.  and  67th  St 

Normal  Ave.  and  72nd  St 

Center  Ave.  and  53rd  St 

10 
60 
30 
60 
10 
10 
10 
23 
11 
40 
75 
66 

Fieldhouse.  Playground  and  Swimming  Pool  . 

225,050 
327,254 
194,587 
259,735 
318,186 
229,529 
206,479 
265,265 
231,088 
177,189 
221,029 
42,307 

2.697,698 

337,114 
151,062 
142,293 
116,208 
128,185 
189,186 
142,007 
152,922 
159,369 
101,152 

1,619,498 

71,744 
126,116 
136,068 
119,398 
70,165 
82,964 
98,714 
92,683 
59,681 
66,137 

923.660 

633,908 
604,432 
472,948 
495,341 
516,526 
501,679 
447,200 
510,870 
450,138 
34-1,478 
221,029 
42,307 

5,240,856 

$39,776.72 

Hamilton  Park 

60,176.14 

r       11  Sauare 

Mark  White  Sq 

Halsted  and  29th  ,St 

36,420.96 

Bessemer  Park 

So.  Chicago  Ave.  and  91st  St.  . . 

30,119.67 

So.  Park  Ave.  and  113th  St 

Western  Ave.  and  39th  St 

30,209.14 

McKinley  Park 

Also  five  small  parks  uii 
Total.  South 

mproved. 

Park  Board 

1448,863.04 

Total  population  902,708. 


WEST  CHICAGO  PARK  BOARD. 

INFORMATION  SHOWN  IS  FOR  THE  YEAR  ENDING  DECEMBER  31,  1910.) 
Child  population  (estimated)  349,660. 


Area  36  square  miles. 


Name  op  Park. 


Small  Park  No.  1  . 
SmaU  Park  No.  2  . 
Small  Park  No.  3  . 
Douglas  Park 


Chicago  Ave.  and  Noble  St. 

Jefferson  and  14th  St. 

May  and  21st  Sts 

Natatorium 


,S        Fieldhouse.  Playground  and  Swimming  Pool 


Playground  and  Swimming  Pool  . 


Total.  West  Chicago  Park  Board. 


USES  OF  FACILITIES. 


294,641 
342,662 
338,967 
482,219 


l,45Sj4S9 


189,310 
172,298 
128,510 


490,11.S 


125,808 
99,147 
132,979 


609,759 
614,107 
600,456 
482,219 


$40,664.98 
38,037.67 
31,434.54 
8,493.62 


Total  population  358,429. 


LINCOLN  PARK  BOARD. 

INFORMATION  SHOWN  IS  FOR  THE  YEAR  ENDING  DECEMBER  31,  1909. 
Child  population  (estimated)  1 17,865. 


Area  13  square  milcf 


Seward  Park ■ 

Lake  Shore  Playground 

Diversey 

Stanton  Park 

Hamlin  Park 

Welles  Park 


Sedgwick  and  Elm  Sts 

Chicago  Ave.  and  Lake  Shore  . 

Lincoln  Park 

Clyboum  Ave.  and  Larrabee  St. 

Robey  and  WelUngton  Sts 

Montrose  Boul.  and  West'm  Av( 


Total,   Lincoln  Park  Board. 


Fieldhouse  and  Playground 

Playground  and  Bathhouse 

Bathhouses  and  Beach -  - .  • 

Fieldhouse,  Playground  and  Swimmmg  Pool 

Unimproved 


USES  OF  FACILITIES. 


Total 


323,279 
87,947 

Open  May  1,  1911 
Open  July  1,  1911 


$23,354.42 
9,677.60 
2,912.04 


SPECIAL  PARK  COMMISSION,  CITY  GOVERNMENT. 

INFORMATION  SHOWN  IS  FOR  THE  YEAR  ENDING  DECEMBER  31,  1910. 
,  City  ol  Chicago,  2,186,283.  Child  population  814,115. 


Area  191  square  miles. 


i  Sawyer  Ave.  and  28th  St. 
Robey  and  22nd  Sts. 


I^LTchristopher  j  «"^»vrjXv"e:Tnd  Perry  St. 

r  "SrE°°Wams I  Seminary  Ave.  and  Center  St... 

George  E.  Adams ,  ^^^  HamUton  Aves 

Commercial  Club  ,  .  .  . !  .,  Chicago  Ave^  and  Rice  St 

Oommercm.  ^.v/mf.  and  Desplames  St« 

Dante..  ..  ■  ■  ■    ■^ Hamlin  and  16th  St 

Hamhn  Avenue H«m,^,^  ^^^  3,^  St  . 

?.°'*^°^  ■ ;  .; Wentvvorth  Ave.  and  33rd  St. 

Max  Bentner p„ii.  and  LafUn  St 

McLaren vlEb^ii  Ave.  and  24th  St.  . . . 

Moseley ■  ■  ■    ■    ■  ■  ■  *,    u    „„,!  Townsend  Sts.  . . . 

Northwestern  Elevated..  Alaska^and  ^1_^_^  ^^^^^^^  ^^ 

y^'e"" Loomis  and  15th  St .  . 

55"??°° Grand  Ave.  and  Carpenter  St. 

Washington- gt^^,  ,^j  t^^  Lake  .... 

WalkerScV  !  i ' !  ! ! ! .  -  Uth  Street  and  the  Lake  .... 
MsoM  small  squares  an|d  tnangles. 


Tnl-'  I  ^"y  Government. 


Fieldhouse  and  Playground. 


Playground  and  Shelter 

"              "      "  (opened  Dec.  1,  '10)  ■ 
Playground  and  Shelter 


Bathhouse  and  Beach. 


USES  OF  FACILITIES. 


231,878 
146,927 
375,119 
136,470 

7,676 
111,000 
266,619 

87,314 
162,884 
371,868 
176,589 
245,067 

83,320 
123,065 
189,540 


Social  and  intellectual. 


There  are  no  social  activities 
in  the  City  Parks  as  found  in 
the  three  park  districts,  only 
three  having  fieldhouses,  each 
containing  but  one  classroom 
where  industrial  and  kindergar- 
ten work  is  carried  on  aa  well 
as  physical  training.  Similar 
work  is  done  in  all  of  the  play, 
grounds  during  thi 
vacation  period. 


Total. 


240,738 
156,302 
.382,383 
136,470 
7,675 
111,000 
266,610 

87,314 
152,884 
371,868 
176,589 
245,067 

83,329 
123,055 
189,540 
263,863 

64,131 

85,370 


$3,297.93 
3,011.32 
5,023.98 
2,639.09 
311.23 
2,714.70 
1,750.68 
3,369.70 
4,110.97 
3,629.89 
2,374.46 
2,718.63 
1,371.72 
1,350.80 
2,478.91 
2,032.61 
1,366.98 
2,809.00 


TABLE    F. 

TABLE  SHOWING  NAMES  AND  ARPac  r.r. 

INDEPENDENT  PARK  GOVEaCNTf.  '^'''  ''''''^^  ''°'""™°'-  °^ 

MENT  RESPECTIVELY  InTch  TotvM "''  "'  ™'  ''"'''  '''''^^''' 
UN  t,AC.H  TOWN  AND  WARD  OF  THE  CITY 


CoW-ntOI.  OP  Pahk  GovEHNlttWT. 


,    SOUTH   DIVISrON  OF  CITY 

south  Park  Commisaloners- 
Grant  Park 


HuBsell  Square 

BuniBide  (Dauphia  Pui 
Grand  CroaaiDg  Park.  . 


Davis  Square 

Sherman  Pack.  . . 

Gage  Park,  ,  ..    ' 
Marquett«  Park.  . 


CONTBOL  OF  CiTT. 


Archer  Point. 

Walker  Beach 

Moseley  Playground 


Holden  Playground. . 


Blackatone  Puin 


Amy  L.  Bruiiiard. . 


Femwocd  Pork. . 


Small  Park  No,  2,  . 


Schoenhofcn  Playground, , 


Walter  Christopher  Playground. . 
McConnick  Playground 


Huihlioldt  Park 


Union  Park. . . 

Vernon  Park 

JeffeiBOD  Park 
Campbell  Park. . 


Holstein  Park. . 


Irving  Park  CommlBsloners: 


North  Western  Park  CammlsBionera: 


Dante  Playground. . 
DcKalb  Square 


Aufltin  Park 

Holden  Park 

Kiniie  Parkway.  . 


Avondale  Park. . 


Norwood  Circle. . 


NORTH  DIVISION  OF  CITY. 

Lincoln  Park  Commissioners: 


Lincoln  Park  (porlio 


Wrightwood  Playground. . 


Audubon  Playground.  . 


LIdcoId  Park  (portio 


Geo.  E.  Adams  F 


North  Shore  Park  Commissioners: 
~  named  Park) 

Ridge  Avenue  Park  Commissioners: 


SUMMARY  OF  ACREAGE. 


2,064.49 

COOl 

2,124  50 

351  64 

51.87 

TABLE   G. 

TABLE  SHOWING  THE  AUTHORITY,  PURPOSE,  AND  1910  R.\TE  OF  EACH  PARK  TAX  LEVY  WITHIN  THE  CITY  LIMITS; 

ALSO  THE  AMOUNT  OF  INCREASE  MADE  POSSIBLE  IN  THE  1910  LEVY  BY  CHANGING  FROM  A  1/5  TO  A  1/3 

VALUATION;  ALSO  THE  AMOUNT  OF  EACH  LEVY  AS  CERTIFIED  TO  THE  COUNTY  CLERK 


^"•^— 

P„„„.. 

RiTOonAnonnTorTai. 

Auoinrr  of  Levt 

iHcnnASE 

Male      'o 
PossrBLE 

"toVs"" 
Valuation. 

AyoONT 

Certifieo 

Countt 
Clebk. 

If  BAaeo 
on  1/5 

VALrjATION. 

IfBabeo 

ON  1/3      1 

Valdation. 

South 

Maintenance  and  Improvement ,  - . 

Purcbaee,    maintenance    and    im- 
provement of  email  parka  o[  10 

Principal    and    intereat,    World's 

Bond  iaaue  for  completing  and  im- 
proving lands 

Bond  issue  for  acquisition  and  im- 
provement of  landa 

Bond  isflue  for  purchase  and  im- 
provement of  small  parlia 

Bond  issue  for  acquiring  and  im- 
proving lauds 

Bond  issue  for  repairing  highways 

Loss  and  Cost  of  coUection 

Limit J300,000 

$   300,000 
909,008 

151,602 
75,800 
25,625 
36,000 

231.000 
77.000 

202,000 

100,800 

9,000 
85,000 

:   300,000 
1,516,014 

252,669 

126,334 

25,625 

36,000 

231,000 

77,000 

202.000 

100,800 

9.000 
86.000 

$606,406 

101,067 
60,534 

$   300.000 
1,224,000 

204,000 

102,000 

25,625 

36,000 

231,000 

77,000 

202.000 

100.800 

9,000 
88,575 

1899,  Amended  1903.  'Oo.      . 
1901,  Amended  1903 

1893,  Amended  1003 

1901 

1899,  Amended  1903 

1901,  Amended  1903 

1905 

1907 

Act  authorisea  H  mill,  only 

1/20  of  principal  and  annual 
1/20  of  principal  anil  annual 
I  /31  of  principal  and  annual 
1/20  of  principal  and  armual 
1/20  of  principal  and  annual 
1/20  of  principal  and  aimual 

1/20  of  principal  and  annual 

Arbitrary 

Total  (South) 

12,203,435 

$2,001,442 

$   758,007 

$2,600,000 

West  Chlnga. . . . 

Bond  issue   for  maintenance   and 

Bond    issue    for    acquisition   and 

improvement  of  small  parka  , 
Bond  issue  for  repairing  highways 

Maintenance  and  improvement;  al- 
so bond  issue  for  improvement 

Maintenance  and  improvement;  al 
so  bond  issue  for  improvement. 

Maintenance  and  improvement;  al 
so  bond  issue  for  improvement 

'A  mill 
Limit  2H  milla,  amendment 

1900  lo  IH  mills , 

Limit ImUl 

Limit  2  miUa;  amended  1909 

55,972 

279,801 
111,944 

223,888 
223,388 

164,000 

82,000 

45,000 
167,916 

167,916 

167,916 

93,287 

279,861 
189,574 

223.S88 
373.148 

164,000 

82.000 

45,000 
279,860 

279.860 

279,860 

37,315 

74,630 
149,266 

■  111  .944 
111,9-44 
111.944 

93,287 

279,861 
186,574 

223.888 
373.148 

164.000 

82,000 

45,000 

52.500  Bonds   & 
227 .360  Maintenan 

50,000  Bonds   A 
229.860  Mamtenan 

26,000  Bonds   i 
253,860  Maintenan 

1873,  Amended 79, 1903, '05.. 

1893.  Amended  1005,  '09 

Limit 2  mill 

1  /20  of  principal  and  annual 

1/20  of  principal  and  annual 

1  /20  of  principal  and  armual 

'°St..V..    .   IH  mills 

Lhnit IH  milla 

Limit..    IJ^ milla 

Int. 

Int. 

Int. 

ce 

Total  (West  Chicago) 

81,690,301 

$2,287,338 

$   597,037 

$2,287,338 

Maintenance  and  improvement . 
Bond  issue  for  park  extenaion. . 

Lose  and  Coat  of  collection 

Bond  issue  for  shore  protection.  ., 

Bond  iflflue  for  purchase  and  im 
provemenl  of  parks  10  acres  and 

Mainterujnee  and  improvement  o 
latere  parka  or  acquisition  o 
other  landa 

Loss  and  Cost  of  collection 

Bond  issue  for  purchase  and  im 
provement  of  parka  of  10  acref 

Am  unt  necessary 

834,200 

82,637 
57,901 

48,184 

42,500 

40,998 

4,000 
34,000 
30,534 

3,450 

834,200 

82,637 
.57,001 

48.184 

42,500 

68,330 

4,000 
34,000 
M.224 

3.450 

27,332 
23.690 

834,200 
82,637 

1/20  of  principal  and  annua 

1903 

1891,,: 

1907 

ArWtrary. 

}i  of   principal  and   annua 

48.184 
42.500 
50,000 

34,000 
34.000 

1/20  of  principal  and  annua 
Limit 1  mil 

1/20  of  principal"  and  annua] 

Limit Imil 

Arbiliary 

Maintenance  and  improvement  o 
10-acro  parks  or  acquisition  o 

Losa  and  Cost  of  collection 

Total  (Lincobi) 

tl,I78,l»l 

$1,229,426 

$51,022 

$1,125,521 

Fernwood. . .    . . 

1895 

1896 

Maintenance  and  Improvement  .- 

Bond  issue  tor  purchase,  improve 

meat,  and  maintenance  of  parki 

and  boulevards 

Limit 4mills 

Principal  and  inUrtMt 

1,823 
1,790 

3,038 
1,790 

1,215 

1318 
1,790 

Total  (Femwood)  .... 

13,613 

H828 

$1,215 

$3,608 



Maintenance  and  improvement.        Limit ^  "iH 

2,626 
1,742 

4.378 
1,742 

1,753 

4,400 
1,742 

provement   and  maintenance  of 
parks  and  boulevards 

Intercat 

Total  (Ridge) 

(4,368 

$6,120 

$1,752 

$6,142 

Calumet 

.    1895 

Maintenance  and  Improvement . 

Limit 4"'' 

s            tlOO 

$166 

$66 

$112 

^,,^ 

.    1895 

Maintenance  and  Improvement  . 

Limit ■!»« 

a       »11,057 

$18,429 

$7,372 

$8,845 



Maintenance  and  improvement.. 

Bond  issue  lor  purchase,  improve 
ment  and  maintenance  of  park 
and  boulevarda  .... 

Limit 4™1 

Principal  and  interest 

s         U.220 
1,780 

$8,700 
1.7S0 

$3,480 

$8,699 
1,780 

»7,000 

$10,480 

$3,480 

$10,479 

^= 

Rldoe  Avenue. . 

.    1895 

.    Maintenance  and  improvement.. 

Limit ^^^^^^^4mil^ 

s         S2,016 

$3,360 

$1,344 

$3,300 

= 

Lincoln.  .  ■ 
Perowood. . 
Ridge 


RECAPITULATION 

$2,061,442 

2,287.338 

1,229,420 

4,828 

6,120 


3,300 
$6,045,345 


3RNEY 


COUNSeL 


STORES   DEf^T. 
Store  Kfecpar 


ENdNCERlNe  OCf  t 


Chf.enqinear 


mAlNTtNANCe  OF 
RfMW5  &  BeoLiv  A«Oi 


Cen'l.  feramon 


BOATING 


ttlanaqars, 


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3P0RT5 

Manager 

,  t 

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AbPMAL 
WORK 

Toremor 


ART  OF  ORGANIZATION 

OF  THE 
SOUTH  PARK  COMMISSIONERS 

AS  OF 
JANUARY  hi,  1911 


JUDGES 

OF     THE    CIRCUIT    COURT 

OF    COOKCOUCNTY 


SOUTH     PAF?K   COIV1IV11S5IONE.R5 
(FIVE) 


GENERAL     SUPERINTENDENT 
AND 

ass't     Superintendent 


IftlPROl'EltlCNr 
Gent,  foi 


Wongqer 


ictcntAM  f«aV. 


CHART  OF  ORGANIZATION 

OF  THE 
SOUTH  PARK  COMMISSIONERS 

AS  OF 
JANUARY  l!i,  191 1 


SERVICE. 
|inr|ISSIONE.RS 


CMiCAOO    Bl. 


)F  RE-ORGANIZATION 

FOR  THE 
I  PARK  COMMISSIONERS 

S  SUGGESTED  BY  THE 

JREAU  OF  PUBLIC  EFFICIENCY 


JU  0GE5 

OF    THE    CIRCUIT  COURT 

OF   COOK    COUNTY 


'SOUTH    PARK   COmiYl  IS5IONERS 
(FIVE) 

IAuditorI 


CIVIL  SERVICE. 


TREASURER 


ATTORNEY 


SECRETARY 


I  ACCOJJNTiNG 

Auditing   def't 


StCRETARlAU  I 


MORTICU 
DEP 

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gardener 

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CULTURE. 

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OENERAL  MAIMTENANCE 


lifii 


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CHART  OF  RE-ORGANIZATION 

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SOUTH  PARK  COMMISSIONERS 

AS  SUGGESTED  BY  THE 
CHICAGO  BUREAU  OF  PUBLIC  EFFICIENCY 


GOVERNOR 
ILLINOIS 


\ 


JuOlClARr 
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WEST  CHICAGO  R4P?Kcomnil55tONERS 
(SE.VE.N) 

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COMfVIITTtES  < 
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GAffFitLO  PARK  LANDSCAPE    DEC'T. 

COHStRVATORY  5MALL  PARKS 


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U   SERV/CE. 
IMM  ISSION 

ComiTIIS&IONE.RS 

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POLICE. 

dep't. 

Horticultural. 
dep't: 

STORES 

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CMICA&O  eoRCAO 

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*  i-\  nn     /— vr-' 

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■>     A    KH—r    A   T'l/^M 

FOR  THE 
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AS  SUGGESTED  BY  THE 
mCAGO    BUREAU    OF   PUBLIC    EFFICIENCY 


GOVE  RNOR 

OF 
ILH  NO!  5 


WE3TCHICAGO    PARK  COWmiSaiONERS 
IPRESIDtNTl |/lfclDITOR| 


TREASORER 


ATTORNE.Y 


CIVIL    SERVICE. 


5E.CRE.TARY 

ACCOljJNTiNO 
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StCRErARIAt. 
FWIMCT'OM 

POLICE. 
DEP'T. 

RECREATION 
DEP'T. 

general  maintenance 
dep't 

ENGI  N  E.E.R  irJO 
DEP'T. 

HORTICULTURAL 

DEP'r 

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Capt^cV, 

Director 

General  foreman 

Chief  engineer 

Londacape  gatr^eoer 

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i|PLArGI?OU« 

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fSION 
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:hart  of  organization 

OF  THE 
LINCOLN  PARK  COMMISSIONERS 

AS  OF 
JANUARY  Ist.  1911 


GOV  E.RNOP? 
ILLI°Nf>|C. 


IcorniviiTrtes 
BOULEVAI?DS 
FINANCE 
JUDICIARY 
LANOXAPL  eWOCNINC 
misc.  WATTfgS     ^ 


JCOiYimiiMONERS  OF  LINCOLN  park! 


COMlVKTTCCa 
PARK    EXTENSION 

5Ef?VICE. 
SHORE  PIfOTECriON 

3MALL  PARKS 
ZOOLOSICAL 


CHART  OF  ORGANIZATION 

OF  THE 
LINCOLN  PARK  COMMISSIONERS 

AS  OF 
JANUARY  Ut,  1911 


SERVice. 

if  EMPWYWeNT 


CopfQin 


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CHiCASO  ftURKAU 

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FOR  THE 
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S  SUGGESTED  BY  THE 

JREAU  OF  PUBLIC  EFFICIENCY 


GOVERNOR 

OF 

ILL  I  NOI^ 


COMIMISilONERa  OF    LINCOLN  PARK 

, ,    (seven) 


TREASURER 


ATTORNE.Y 


CH1E.F   ACCOUNTANT 
A~i>    SECRETARY 


CCOU^NT.NG  J 


SuPtRi'^TENOth 


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STORE.5 

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Purchasing  aqenT 

COUTUHt  1    1   Cl/UTI-RB. 

CHART  OF  RE-ORGANIZATION 

FOR  THE 
LINCOLN  PARK  COMMISSIONERS 

AS  SUGGESTED  BY  THE 
CHICAGO  BUREAU  OF  PUBLIC  EFFICIENCY 


M 


ENGIN££F?ING      ESTAURANTSERViCt 
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Z00U.0GICAL. 

DEP'T. 


Meod  animal  Keeper 


C/4icAeo  Bureau  of 
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NIZATION  UNDER  CONSOLIDATION 

AS  SUGGESTED  BY  THE 
BUREAU  OF  PUBLIC  EFFICIENCY 


mAYOR 


CITY   COUNCIL 


COUNCl  L 
COIYIM  ITTEE 


SUPE.RINTE.NDENT 


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ACCOUNTING      AND 
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DEP'T. 


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DEP'T. 


Mcsnager 


Zoological 

DEP'T. 


Heod animal  Keeper 


fVepared  bi/ 
CMicAeo  Bureau  of  Pubi.ii 
Ottr    1911 


EfFlCltMCV 


CHART  OF  ORGANIZATION  UNDER  CONSOLIDATION 

AS  SUGGESTED  BY  THE 
CHICAGO  BUREAU  OF  PUBLIC  EFFICIENCY 


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